I'm not sure what you are doing.  Let me suggest what I think you are saying and  a solution.

You have 20 steps in your package.  I am going to guess that you have not used the workflow designer to join these steps.  They operate in the order they were created.  Now, you want the 14th step to be the 9th step in order.

I would use the workflow tool.  You link step to step.  To move step 14 to step 9 you would remove the link from step 8 to step 9 and the link from 13 to 14 and 14 to fifteen.  You link step 8 to step 14 and step fourteen to step 9 (which now becomes step 10).  Then you link step 13 to 15.

Am I close?

Russ