I see that others have had trouble with getting feature services vs. layers to reorder. I'm working just with shapefiles and am having the same issue. I can drag each layer above or below, but the visual map does not change. Specifically, the fill shading of parcels is covering up roads, again no matter how I order them in the TOC/Legend. Is this the same issue others are having? Should I publish them in a different way to get around this?