It appears that you want to know if all the elements in one string are in the other.

Assumptions: the following strings will match:
- "cake,cake,patty", "cake,patty,cake"
- "bread,water", "water,bread"
The following strings won't match:
- "cake,cake,patty", "patty,cake"
- "brad,water", "water,bread"

# check_strings - takes two parameters, returns true if same
sub check_strings( $ $ )
{
    # arguments
    my ( $string1, $string2 ) = @_;

    my @elements1 = sort split(',',$string1);
    my @elements2 = sort split(',',$string2);

    if ( scalar(@elements1) <=> scalar(@elements2) )
    {
        return( undef ); # differing number of elements
    }

    for ( my $i = 0; $i < scalar(@elements1); $i++ )
    {
        if ( $elements1[$i] cmp $elements2[$i] )
        {
            return( undef ); # element differs
        }
    }

    return( 1 ); # elements are all the same
}
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