Carl,
I don't see how you can't at least consider where the hole might play in a routing, because the example shows what can happen, with 7 being not as good an opener as 1 was. Distinguishing routing and order of holes is a bit picky, IMHO.
We usually joke that we show the nines reversed from what we really want, knowing that someone will come up with the idea that the nines should be reversed, and that way we get what we really want.
Funny timing, in that I took a break from routing a course, where I was trying to decide whether two particular holes in the middle of the front nine should be 4 and 5 or 8 and 9.......probably will stick with 4 and 5 to save one road crossing in a development course. Golf wise, they play a little better, but not much, but it shows some of the "other" considerations that might affect the order of holes.
Others are avoiding particular sun orientations early and late in the rounds, or having the early holes closer to the maintenance facility and having more holes hook into housing vs. slicing into housing. I am working this same routing two ways, putting maintenance near 2, where they could get to early holes quicker, or in reverse, 17, where they couldn't. However, 1 would be uphill vs. downhill, with a lake right vs. a lake left, and I probably prefer the reversed routing because the holes are better.