For sheet list tables and sheet set publishing purposes, the default order of the sheets is exactly the same as they are ordered on the Sheets tab of Project Navigator. To reorder the sheets, drag them to the desired location in the Sheet Set View. For example, if you want your cover sheet to appear first in the sheet set, drag it to the top of the sheet set view. If you do not want to include a drawing in the sheet set, right-click it and click Remove Sheet. This does not delete the sheet; it only removes it from the sheet set.
When plotting or publishing a sheet set, you can reorder, add, or remove sheets in the Publish dialog box. Note that these changes will not be reflected in the sheet list table, however, and may result in publishing output of individual drawings rather than a complete set of project drawings in one DWF file.