A set is unordered, for instance [a, b] = [b, a], the fact that the order of the elements differs does not affect equality.
That said, in Pascal (and likely other compilers that implement sets), every set element is enumerated. Using that enumeration, the compiler selects the bit that represents the set element. That is a form of ordering but, that ordering does NOT affect set equality (among other possible operations applicable to sets.) IOW, the internal implementation does not affect the mathematical properties of sets, among them, that element order does not affect the set properties.
@Zoran,
Because Pascal enumerates the set elements and selects a bit based on that enumeration, it is fair to say that sets are internally ordered, i.e, bit 0 is always the first element, bit 1 the second and so on but, that internal ordering does not impose an external ordering. i.e., [a, b] still equals [b, a]
In Mathematics a set is an unordered collection of elements and FPC's implementation is true to all mathematical properties of sets.
It's internal implementation, so far, imposes only a few limits, among them the number of elements that a set can contain. IOW, a Pascal set has a limit (currently 256), a Mathematical one does not (e.g, set of primes.)
The current implementation also imposes limits on the values of the elements that can be members of a set, e.g, defining a set of [32767..32800] is asking for trouble because FPC does not handle a lower or upper) bound outside the 0 through 255 range.