I don't believe this is a bug. Fargrave (the map in the location list with the mapIndex) behaves like a world map (Blackreach or Tamriel). It doesn't have a single zone inside, but two separate sub maps with their own zone ids (The Shambles and Fargrave City District).
The zoneId you mentioned is for Fargrave City District and not the Fargrave map itself.
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