build

Tiny fix: align template parameter order with parameter order. #3307

Job	Run time
bazel	1m 55s
macos-latest (make) Release	1m 12s
ubuntu-latest (make) Release	2m 37s
ubuntu-20.04 (make) Release	3m 54s
windows-latest (windows) Release	17m 54s
	27m 32s

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