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Answer cross posted at #384944
I saw this issue with a fake localization and map server with Nav2. I traced the issue to "latched" topics. If I start map server after nav2 nodes, then it works.
Per https://docs.ros.org/en/rolling/Concepts/Intermediate/About-Quality-of-Service-Settings.html A map_server publishing as "transient_local" should be readable by subscriber as volatile, but this doesn't seem to work in humble.
See discussion at https://github.com/ros2/ros2/issues/464
To see old messages, the subscriber also needs to be "transient local". Nav2 costmap subscribes as "volatile" (at least in humble), so it does not see the old map.