Question about cities and z-levels and specials

I’ve been experimenting with z-levels to see if I could get submerged areas (such as a office building half covered by the ground) and while I’ve found some success by moving the “field” like so

“type”: “region_settings”,
“id”: “default”,
“default_oter”: [
“open_air”,
“open_air”,
“open_air”,
“open_air”,
“open_air”,
“open_air”,
“open_air”,
“open_air”,
“open_air”,
“field”,
“solid_earth”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”,
“empty_rock”

this still only works on map specials like rural houses, etc. out in the wilderness but completely erases any roads or cities (however even more curios still is the fact that forests still generate and overide the “solid earth” layer, while roads and cities don’t) covered by the solid earth and empty rock layer, and prevents them from generating.
I can tell that cities were supposed to go here, but for some reason they’ve been completely erased, since the overmap still has their names on them


Besides having to make specials to dot randomly around the map (instead of more uniformly together as if they were a whole sunken city) is there any way that I can get the game to prioritize the city pieces like office buildings over the solid earth?