The following query will give you a list of all users and the count of their orders, including 0 if that user has no orders.
Also, are you sure that ORDER_ID is the FK to the user table? That seems counter-intuative to me...
SELECT U.NAME
,COUNT(O.ORDER_ID)
FROM USERS U
LEFT OUTER JOIN
ORDERS O
ON U.ID = O.ORDER_ID
GROUP BY
U.NAME