There is a lot that is unknown about the serial numbers and principle of distribution. Especially during the war time.
Plus, there is an overlap between serial numbers of orders produced in USSR and those produced in Yugoslavia.
Order for bravery, produced in USSR is awarded up to the number 13XXX (highest known is 13832), while those produced in Yugoslavia have numbers that start in the 10000 range.
Partisan star, same story.
There is also one more problem.
Often times, during the war, delivery of orders and medals was delayed.
So, during the ceremony, the order would not be handed to the recepient, they would simply read the document, congratulate the awardee, and issue the order when one was available.
I can find specific witness accounts of such things.