Guarantee ordering between plugin hooks

**Problem**

Currently, there are no ordering guarantees between plugin hooks. In particular, `start/setup` and `close/teardown` get executed concurrently for all plugins. This creates problems in some cases (e.g., #8485) and makes it generally harder to reason about things.

**Proposed Solution**

It would be nice if we could guarantee ordering between the individual plugins. This probably means that we choose their registration order to ensure that the ordering is _always_ the same, e.g. for existing and new workers.

**Notes**

There are some caveats to this, like non-ordered RPC calls (#7480), that we need to consider.