This is one of the few pips in the settlement_mechanics file i have not got around to testing. It only affects settlements, obviously. As i stated in another thread every pip in this file refers to a value from another file, such as the EDB, descr_regions. The pip itself is nothing more than a percentage value of the actual value taken from this other file. Using castle or city_modifier simply modifies the pip value further.
(in your example the city modifier value is 0.5, so it is 50% of the value of the pip, which itself is 50% of the value from another file - it does get confusing if you think on it for to long lol). As for the actual distance that is being measured, i can't say. I believe some of the values are hardcoded and are not found in other files (like BOOM, no idea where that is measured). So its possible this value can not be edited, but the settlement_mechanics file can modify it indirectly. The distance could be the value in the descr_character file
From descr_character.
Code:
starting_action_points 140 ; default value for all characters and pathfinding calculations
My guess is increasing the pip will increase the distance before order issues come into effect, decreasing the pip will shorten the distance.
From my tests with other values in this file, thats the best i got for you at this stage. Hope it helps.