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I'm not entirely sure what you are trying to describe here. It may be that there is a misunderstanding about the functionality provided.

I have described the intended functionality below. I would be more than happy to take another look if, after retesting, you still believe the behaviour to be contrary to that intended.

In the higher level where there is a navigator (without next/previous submission), the navigator loops through all users, irrespective of whether they have submitted something or not.

In the deeper level (with next/previous submission), the navigator only loops through the submitters who have submitted something. To avoid random jumps in numbering, all submitters with submissions are numbered sequentially from 1, with other submitters (without a submission) pushed to the end and inaccessible:

If there are 7 submitters with submissions out of a total of 20 registered for the publication, those with submissions are numbered 1-7 (accessible), those without are numbered 8-20 (inaccessible).

If, while looping through the users, a submission is added by a submitter who previously had none, they are instantly added to the set of submitters with submissions. This can cause the effects you mentioned. Simultaneously looping through the submitters and removing a submission will produce similar jumps in numbering.