I don't get the question.
If the steerer is too short, adding a spacer top or bottom only makes it worse.
Back to the basics. The steerer must end below the top of the stem and spacer stack. This allows the top cap to push the stack down and compress the headset.
Ideally, the steerer should end 2-3 short of the top of the stack. Add or remove spacers to achieve that. The sequence doesn't matter, so whatever you prefer is OK.
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