diff --git a/usr.sbin/config/config.5 b/usr.sbin/config/config.5
index 6dc8e1544d83..fa745feb05f0 100644
--- a/usr.sbin/config/config.5
+++ b/usr.sbin/config/config.5
@@ -23,7 +23,7 @@
 .\"
 .\" $FreeBSD$
 .\"
-.Dd June 22, 2018
+.Dd June 26, 2018
 .Dt CONFIG 5
 .Os
 .Sh NAME
@@ -124,6 +124,18 @@ the compiled-in environment instead, unless the boot environment contains
 This directive is useful for setting kernel tunables in
 embedded environments that do not start from
 .Xr loader 8 .
+.Pp
+All
+.Ic env
+and
+.Ic envvar
+directives will be processed and added to the staitc environment in the order of
+appearance.
+Note that within
+.Ar filename ,
+the first appearance of a given variable will be the first one seen by the
+kernel, effectively shadowing any later appearances of the same variable within
+.Ar filename .
 .\" -------- ENVVAR --------
 .Pp
 .It Ic envvar Ar setting
@@ -133,11 +145,13 @@ compiled-in environment.
 must be of the form
 .Dq Va name=value .
 Optional quotes are supported in both name and value.
-All environment variables specified with
-.Ic envvar
-will be set after any
+.Pp
+All
 .Ic env
-files are included.
+and
+.Ic envvar
+directives will be processed and added to the staitc environment in the order of
+appearance.
 .\" -------- FILES --------
 .Pp
 .It Ic files Ar filename
diff --git a/usr.sbin/config/config.h b/usr.sbin/config/config.h
index faff48513a34..fd5fb344e791 100644
--- a/usr.sbin/config/config.h
+++ b/usr.sbin/config/config.h
@@ -37,6 +37,7 @@
  */
 #include <sys/types.h>
 #include <sys/queue.h>
+#include <stdbool.h>
 #include <stdlib.h>
 #include <string.h>
 
@@ -142,6 +143,7 @@ SLIST_HEAD(, opt_list) otab;
 
 struct envvar {
 	char	*env_str;
+	bool	env_is_file;
 	STAILQ_ENTRY(envvar) envvar_next;
 };
 
@@ -175,7 +177,6 @@ SLIST_HEAD(, includepath) includepath;
 #define OPT_AUTOGEN	"CONFIG_AUTOGENERATED"
 
 extern char	*ident;
-extern char	*env;
 extern char	kernconfstr[];
 extern int	do_trace;
 extern int	envmode;
diff --git a/usr.sbin/config/config.y b/usr.sbin/config/config.y
index 0d431f55beeb..c79bc376b788 100644
--- a/usr.sbin/config/config.y
+++ b/usr.sbin/config/config.y
@@ -82,7 +82,6 @@
 
 struct	device_head dtab;
 char	*ident;
-char	*env;
 int	envmode;
 int	hintmode;
 int	yyline;
@@ -99,6 +98,7 @@ int yywrap(void);
 
 static void newdev(char *name);
 static void newfile(char *name);
+static void newenvvar(char *name, bool is_file);
 static void rmdev_schedule(struct device_head *dh, char *name);
 static void newopt(struct opt_head *list, char *name, char *value, int append);
 static void rmopt_schedule(struct opt_head *list, char *name);
@@ -191,20 +191,8 @@ Config_spec:
 		|
 	MAXUSERS NUMBER { maxusers = $2; } |
 	PROFILE NUMBER { profiling = $2; } |
-	ENV ID {
-		env = $2;
-		envmode = 1;
-		} |
-	ENVVAR ENVLINE {
-		struct envvar *envvar;
-
-		envvar = (struct envvar *)calloc(1, sizeof (struct envvar));
-		if (envvar == NULL)
-			err(EXIT_FAILURE, "calloc");
-		envvar->env_str = $2;
-		STAILQ_INSERT_TAIL(&envvars, envvar, envvar_next);
-		envmode = 1;
-	        } |
+	ENV ID { newenvvar($2, true); } |
+	ENVVAR ENVLINE { newenvvar($2, false); } |
 	HINTS ID {
 		struct hint *hint;
 
@@ -361,7 +349,21 @@ newfile(char *name)
 	nl->f_name = name;
 	STAILQ_INSERT_TAIL(&fntab, nl, f_next);
 }
-	
+
+static void
+newenvvar(char *name, bool is_file)
+{
+	struct envvar *envvar;
+
+	envvar = (struct envvar *)calloc(1, sizeof (struct envvar));
+	if (envvar == NULL)
+		err(EXIT_FAILURE, "calloc");
+	envvar->env_str = name;
+	envvar->env_is_file = is_file;
+	STAILQ_INSERT_TAIL(&envvars, envvar, envvar_next);
+	envmode = 1;
+}
+
 /*
  * Find a device in the list of devices.
  */
diff --git a/usr.sbin/config/mkmakefile.c b/usr.sbin/config/mkmakefile.c
index 154533305172..ca9e8c14ec1d 100644
--- a/usr.sbin/config/mkmakefile.c
+++ b/usr.sbin/config/mkmakefile.c
@@ -306,13 +306,6 @@ makeenv(void)
 	char line[BUFSIZ], result[BUFSIZ], *linep;
 	struct envvar *envvar;
 
-	if (env) {
-		ifp = fopen(env, "r");
-		if (ifp == NULL)
-			err(1, "%s", env);
-	} else {
-		ifp = NULL;
-	}
 	ofp = fopen(path("env.c.new"), "w");
 	if (ofp == NULL)
 		err(1, "%s", path("env.c.new"));
@@ -321,22 +314,27 @@ makeenv(void)
 	fprintf(ofp, "\n");
 	fprintf(ofp, "int envmode = %d;\n", envmode);
 	fprintf(ofp, "char static_env[] = {\n");
-	if (ifp) {
-		while (fgets(line, BUFSIZ, ifp) != NULL) {
-			sanitize_envline(result, line);
-			/* anything left? */
+	STAILQ_FOREACH(envvar, &envvars, envvar_next) {
+		if (envvar->env_is_file) {
+			ifp = fopen(envvar->env_str, "r");
+			if (ifp == NULL)
+				err(1, "%s", envvar->env_str);
+			while (fgets(line, BUFSIZ, ifp) != NULL) {
+				sanitize_envline(result, line);
+				/* anything left? */
+				if (*result == '\0')
+					continue;
+				fprintf(ofp, "\"%s\\0\"\n", result);
+			}
+			fclose(ifp);
+		} else {
+			linep = envvar->env_str;
+			sanitize_envline(result, linep);
 			if (*result == '\0')
 				continue;
 			fprintf(ofp, "\"%s\\0\"\n", result);
 		}
 	}
-	STAILQ_FOREACH(envvar, &envvars, envvar_next) {
-		linep = envvar->env_str;
-		sanitize_envline(result, linep);
-		if (*result == '\0')
-			continue;
-		fprintf(ofp, "\"%s\\0\"\n", result);
-	}
 	fprintf(ofp, "\"\\0\"\n};\n");
 	if (ifp)
 		fclose(ifp);