If your nation has no Points of Interest, then you're a horde. Orcs will always recieve the bonuses of a horde, regardless of having a PoI or not.
Normal hordes(humans, and like) dosen't exist from the start of the project, but can be created if you lose all your PoI. These hordes will have 7 Values until the end of a period.
If they did't conquer anything in this period, then this horde will continue as a horde for the next period.
If they conquered anything in this period, then the horde benefits will stop being given, and the horde will return as a normal faction.
Orcs will always have a minimum of 7 Values, which they can spend on units. It dosen't stack with other bonuses.
Orcish hordes will still have to build a village, which include the whole clan. If this ain't enough building, then you can help build the draenai PoI.