Everything about the clone's is very up in the air, we really don't know to much about where they came from?, who ordered them? or when they where ordered?. My understanding is that it was a shape shifter posing as Sifo-Dyas who contacted Kamino and ordered the making of the clones. If that's the case then it was probably only Sidious that made those orders with out any one else's help. As I say order 65 was probably just there if the Jedi found out about them, so they wouldn't get suspicious. I've also heard that it was actually SIfo-Dyas that ordered the clones and then Dooku killed him, which if that's the case then the chancellor would have made the orders but probably with the help of his advisers and top guys from the security council and the senate (Not everyone just the very top one's).