See the historical notes under proposal and ratification, in particular the table of article revisions approved in 1789. The order of ratification was contingent on a series of historical accidents and has little to do with Madison’s (or any other individual founder’s) intentions.
The table "Approval of the Bill of Rights in Congress and the States" shows that the amendments are in the same order in the Bill of Rights as they were in Madison's original proposal, and all were ratified December 15, 1791.
Some of his proposals were removed, though, and one of those was resurrected two hundred years later.
See the historical notes under proposal and ratification, in particular the table of article revisions approved in 1789. The order of ratification was contingent on a series of historical accidents and has little to do with Madison’s (or any other individual founder’s) intentions.