The issue addresses NETCONF protocol, where the list has no own XML node, but multiple nodes representing list items. It means the list (collection of items) cannot be replaced as a single element using NETCONF protocol but via sequence of per-elements updates.

In order to change the ordered list items order, affected items require to be deleted first then inserted in expected order. If this sequence of operations is performed in a single transaction, the items order remain unchanged.

See failed test case here https://git.opendaylight.org/gerrit/c/yangtools/+/110016/1