Field Order Should Not Matter: Permutation-Invariant Embedding Model Fine-Tuning for Structured Metadata Retrieval

We study retrieval over catalogs of structured metadata, where each record is a small schema whose fields answer different kinds of query. Embedding a record with a text encoder first serializes its fields into a string, which forces a choice of field order. We show this choice, usually treated as an implementation detail, silently controls retrieval quality once the encoder is fine-tuned. A standard fine-tune loses 7.4 nDCG@10 points when the index is rebuilt under a different field order, because it reads absolute position instead of the field labels. We propose permutation-invariant fine-tuning (PI-FT), which serializes each record under a freshly sampled field order with random field dropout, so meaning binds to the labels rather than to position. The change is about two lines in the data loader; it costs negligible in-distribution accuracy and cuts the order-change penalty to 0.2 points. We study this in the discovery of development statistics, a catalog of nearly 10,000 indicators that should be searchable in many languages by a model small enough to self-host. As AI assistants and agents increasingly mediate access to public data and statistics, this retrieval step decides whether an answer is grounded in the right indicator or series, making discoverability a precondition for disseminating data through AI. Because usage logs cannot provide training signal for indicators no one has searched, we generate the queries instead. DevDataBench is a fully LLM-generated benchmark of grounded, facet-targeted queries across 15 languages, covering every indicator for both training and evaluation. A fine-tuned 118M-parameter CPU encoder outperforms every zero-shot baseline, including texttttext-embedding-3-large (0.707 vs. 0.556 nDCG@10), with the largest gains in low-resource languages. We release the benchmark, pipeline, models, and a reusable PI-FT framework.