Paul, O14.1 is really specific.
... He then activates one friendly unit or
player (as appropriate for the Order—as
Recover [O22] and Rout [O23] activate players,
not units) that has not yet been activated that
Turn to perform the Order.
Also don't forget that rule 4.3.1 tells you how many order you can give in your turn. (based on your OB stats)