hook_form_form_id_alter does not honor changes made by hook_module_implements_alter

The title says it all. hook_form_form_id_alter does not honor hook order changes by implementing hook_module_implements_alter by a module.
However, hook_form_alter does so.

The attached code contains 3 simple modules. Module 1 exposes 3 forms, module 2 and module 3 alter those forms. Module 1 tries to change the order of hooks (hook_form_form_id_alter) but it does not work. However if Module 2 and Module 3 implement hook_form_alter, then Module1 can change the order of hooks but that changes it for all forms.