overlay layer don't follow top layer order
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Description
Hello,
I've set high urgency notification on the layer `overlay` to make `high` notification visible even when I fullscreen anything.
Problem is that then it's over `low` and `normal` notification because `overlay` have this own order. I'm not exactly sure.
I'm using latest (as today) mako version b8a82cef0d15d2a88f2ba55e85dff7b6bd9a4060 on `sway-git`

config:
```ini
[urgency=high]
layer=overlay
```
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