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:
TCP port 2377 for cluster management communications
TCP and UDP port 7946 for communication among nodes
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?