This is not as simple as that IMO. We are assuming that if instruments are shown they will be grouped by payment handler (which is not a requirement).
What if a browser wants to honour the user's preferences which are defined by payment method and there are two apps with instruments supporting the user's favourite payment method? Can the browser show these two first or must it first order the payment handlers (and if so, on what basis) and then the instruments.
At the most I think we can say that order of priority for the instruments from a single payment handler is inferred b y the order they are registered by the handler but beyond that, how that order is mixed in with other preferences, is UX space and not in scope for us.
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