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Not sure how it was that no one noticed this before, but the "Position" combos in the Action wiz are completely wrong. The order of items within a menu is completely random.
Easy enough to fix, anyway - just use DataFolder.getChildren to find the children.
committed Up-To-Date 1.23 apisupport/project/src/org/netbeans/modules/apisupport/project/ui/wizard/action/GUIRegistrationPanel.java
yes, you are right:( verified in trunk.