If you switch to the map layer, then right-click on the background map image (almost anywhere on the map layer... there shouldn't be much else on it), then click "to back". That should send the map image behind everything else on the map layer. There's a couple of complications to the z-order - if a token "has sight" enabled or a player has been assigned permissions to it, it'll stay on top of other tokens no matter what you do. This shouldn't affect the map layer though - it's not a useful layer for a player token to be on. Something to be aware of though.