Considering the layers in turn from background to foreground (which is working upwards in the Layer Gallery), first you must have all the static layers. These are layers which are always visible and are not used as popups. In most designs there will only be one – the "MouseOff" layer. But some designs may have several, in which case they must be the first layers in the layer stack.
Next comes the MouseOver layer, if there are mouseover effects on the static layer(s). This contains the mouseover states for all your mouseover buttons.
This must be followed by the "MouseDown" layer, if you have mousedown effects on the static layer(s).
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