diff --git a/django/db/migrations/state.py b/django/db/migrations/state.py
index fe8594ad77..9280f5cd26 100644
--- a/django/db/migrations/state.py
+++ b/django/db/migrations/state.py
@@ -603,7 +603,7 @@ class ModelState:
             (self.name == other.name) and
             (len(self.fields) == len(other.fields)) and
             all((k1 == k2 and (f1.deconstruct()[1:] == f2.deconstruct()[1:]))
-                for (k1, f1), (k2, f2) in zip(self.fields, other.fields)) and
+                for (k1, f1), (k2, f2) in zip(sorted(self.fields), sorted(other.fields))) and
             (self.options == other.options) and
             (self.bases == other.bases) and
             (self.managers == other.managers)
diff --git a/tests/migrations/test_state.py b/tests/migrations/test_state.py
index 1bb6b66c3c..3b34376188 100644
--- a/tests/migrations/test_state.py
+++ b/tests/migrations/test_state.py
@@ -1042,6 +1042,28 @@ class ModelStateTests(SimpleTestCase):
         with self.assertRaisesMessage(InvalidBasesError, "Cannot resolve bases for [<ModelState: 'app.Model'>]"):
             project_state.apps
 
+    def test_fields_ordering_equality(self):
+        state = ModelState(
+            'migrations',
+            'Tag',
+            [
+                ('id', models.AutoField(primary_key=True)),
+                ('name', models.CharField(max_length=100)),
+                ('hidden', models.BooleanField()),
+            ],
+        )
+        reordered_state = ModelState(
+            'migrations',
+            'Tag',
+            [
+                ('id', models.AutoField(primary_key=True)),
+                # Purposedly re-ordered.
+                ('hidden', models.BooleanField()),
+                ('name', models.CharField(max_length=100)),
+            ],
+        )
+        self.assertEqual(state, reordered_state)
+
     @override_settings(TEST_SWAPPABLE_MODEL='migrations.SomeFakeModel')
     def test_create_swappable(self):
         """