If the machine is coldstarted then previous devices could be randomly reshufled. Imagine you have a datacenter with 100 machines and you have some kind of provisioning scheme where you coldstart them often. It would be a nightmare having to run ethtool -p <dev> and replug cables.

We have solved the problem by providing a consistent algorithm of sorting all the devices in a udev callback. We have a known set of hardware so we know which cards are add-ons (our machines have 4+ eth ports) and which ones are built-ins. So it works out, however, it would be nice to generalize it somehow.