Getting too far off topic, now, because “still my mind goes wandering”.
I got that. But I saw zero ambiguity to be concerned about.
Just chewing the fat over this, for fun - no personal grammatical or comprehension deficiencies implied or intended…
So you found it non-cogent? Interesting. My analysis is that the use of ‘train’ and immediate lack of any other verb after ‘to’ in this context told my brain in a fraction of a picosecond that it was ‘train’ as a verb and not a noun, and made it immediately cogent.
But ‘create’ does the heavy work here, and signals - a couple of picoseconds before the brain gets to ‘to’ - that ‘train’ must be a verb here, because…
…according to context. In the headline’s context, the verb ‘created’ tells me, instinctively, what function ‘to’ has here. Had ‘created’ been a different verb, e.g. ‘sent’ then the meaning of ‘to’ might have been ambiguous, as you imply.
She ‘createdsent miniature death scenes to train investigators’ could mean ‘train’ as either a verb or noun, for sure, in the absence of other context. Other qualifiers, or what precedes or follows it, would dictate the actual meaning, and care to avoid ambiguity would indicate to the speaker that some qualifier or context is needed.
Create would not typically be used with ‘to A NOUN’. One does not typically create something to a real noun. One creates something for VERBING… or creates to A VERB. But a coach and horses could be drive through that with an abstract noun. E.g. ‘the thing was created to meet the specifications’ might be expressed as ‘the thing was created to specification’.
Which brings us to ‘order’
Of course - where ‘made to order’ IS being used in the ‘made to specification’ sense, it is because ‘order’ IS being used as a noun. But elsewhere it’s meaning in context depends on what precedes/follows it.
Is it an adjectival term (needing hyphenation)? So the made-to-order thing was made to order for the maker’s client.
Or perhaps the made-to-order robot was made to order such that it could be made to order the the other robots to kill themselves. 
But I’m sure counter-examples to all my statements might be found. Ain’t English fun! Especially where it exercises the art and science of the expert headline writer.
(And I need to get back to reality - too much whimsical mind-wandering musing for this time of day.)
