There are a few considerations to be kept in mind while trying to configure a docker swarm on windows server 2016.
To configure swarm, Windows Server 2016 requires KB4015217 (windows update) and the following firewall ports to be open on all nodes:
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TCP port 2377 for cluster management communications
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TCP and UDP port 7946 for communication among nodes
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UDP port 4789 for overlay network traffic
The configuration process is explained in this thread: https://www.edureka.co/community/54851/puppet-docker-clustering-docker-engines-swarm-mode?