It doesn't seems like order is important:
$ podman run --rm -it -d --name set1 --cap-add setuid --cap-add setgid --cap-drop all alpine sleep 1h 7348089e63cf0e1366aed71f5e15f429712095670afc74e9dd1bb9696999cfc8
$ podman run --rm -it -d --name set2 --cap-drop all --cap-add setuid --cap-add setgid alpine sleep 1h cfcf0b6ca9ba589cb3a1734da6c6e5a69683ef85e991e91c101d1802fe2e371e
$ podman inspect set1 -f "{{ .EffectiveCaps }}" [CAP_SETUID CAP_SETGID]
$ podman inspect set2 -f "{{ .EffectiveCaps }}" [CAP_SETUID CAP_SETGID]
It doesn't seems like order is important:
$ podman run --rm -it -d --name set1 --cap-add setuid --cap-add setgid --cap-drop all alpine sleep 1h 366aed71f5e15f4 29712095670afc7 4e9dd1bb9696999 cfc8
7348089e63cf0e1
$ podman run --rm -it -d --name set2 --cap-drop all --cap-add setuid --cap-add setgid alpine sleep 1h cb3a1734da6c6e5 a69683ef85e991e 91c101d1802fe2e 371e
cfcf0b6ca9ba589
$ podman inspect set1 -f "{{ .EffectiveCaps }}"
[CAP_SETUID CAP_SETGID]
$ podman inspect set2 -f "{{ .EffectiveCaps }}"
[CAP_SETUID CAP_SETGID]