at first glance this seems to be a bug. Per 3GPP 29.060 chapter
9.3.1.1:
The sending GGSN and SRNC shall use 0 for the value of the Sequence Number of the first G-PDU in a tunnel, only during the PDP context activation, and shall increment the Sequence
Number for each following G-PDU. The value shall wrap to zero after 65535.
The receiving GGSN and SRNC shall set the content of a counter to zero, only during the PDP context activation. When the receiving GGSN and SRNC receives a valid G-PDU, it shall
increment this counter by one. This counter shall wrap to zero after 65535. It defines the "Expected Sequence Number".