Forget about the Photos App. You will never get it right; it just doesn't work. And from what I've read from other People, iPhoto has its own little bugs. After fighting with this issue form months (and waiting HOURS trying to order photos), I went with Photo Manager Pro which is an excelent app. You can do everything you can't with Apple's sofware: order pictures in the order you want, any order; copy, paste, transfer... you name it, it does it.
There is another way to have pictures ordered as like, and this solution saves a lot of space on your device, because the pictures are actually NOT in your device's memory: SkyDrive. Upload your photos to SkyDrive, order them as you like, get the SkyDrive App, and display your photos directly from the cloud. Granted, the resolution is not super, but if you use your iPad just to show pictures to your friends or to dispaly stuff that you sell, it works great. Also, you can forget about sync'ing photos, having to do it for every device you have, etc. As long as the pictures are in order in your SkyDrive folder, they will appear in that order on any of your devices (and any computer).