Yes. I checked the Microsoft documentation specifically for the Germany localization in BC 28.x, and your expectation is basically correct: you should not need to manually create/import the ZUGFeRD mapping just to make the standard ZUGFeRD format available.
The important distinction is between creating the E-Document Service and having the standard E-Document Format/Mapping records provisioned by the German localization.
What Microsoft says for BC 28.3
ZUGFeRD has been supported by the German E-Document Framework since BC 26.3. Microsoft says the German localization supports:
Peppol BIS 3
XRechnung
ZUGFeRD
and the documented setup is simply to create an E-Document Service and select ZUGFeRD as the Document Format
The ZUGFeRD capability became generally available on August 1, 2025, so BC 28.3 absolutely falls within the supported versions
Therefore, if you have:
E-Document for Germany 28.3.52162.53387
Is Installed = On
E-Document Service = ZUGFERD-DE
Document Format = ZUGFeRD
but Electronic Document Formats only contains PEPPOL BIS3, I would not consider that normal
The error is the key clue
You are getting:
There is no E-Document Mapping within the filter.
Filters: EDocument Format: ZUGFERD-DE, Used: Yes.
This tells us the problem is deeper than the E-Document Service record.
The service exists:
ZUGFERD-DE
Document Format = ZUGFeRD