I'm taking Ben at his word which naturally generates problems with his track record. His. "the guardians of peace and justice" blurb carries over to TPM's crawl so clearly Lucas didn't intend them to be a couple of hundred people.

He could be puffing up the order. "Morgan Cartewell is the guardian of oral hygiene in the universe" (that sort of thing) but unlike Luke's family relationships Ben hasn't got a reason to exaggerate or fib and his claims seem to backed up by what the Rebel and Imperial leaders say so yeah...that implies a large body of people doing stuff in a very open way...to me.