Location Services may be working within its limitations…
Only WiFi+Cellular models of iPad have GNSS/GPS with which to derive precision location - this being a function of the iPad Cellular chipset. By contrast, WiFi Only models of iPad have no GPS capabilities with which iPad Location Services can derive location. This fundamental difference may significantly impact your ability to use mapping Apps - in particular if real-time positioning (e.g., a moving map) is required.
WiFi Only models can only “infer” their location from a database lookup of neighbouring WiFi networks for which the geographic location is known, or the geographic location of your public IP address. For static applications in urban locations, where the location of IP public IP addresses and WiFi networks are known, an “inferred” location can be relatively accurate. However, in rural locations, or when using a Cellular/Satellite/VPN connection, location accuracy of an inferred location [if it works at all] may be very inaccurate.
If you need to have moving maps, or reliable operation of Location Services, you’ll need to consider a WiFi+Cellular model of iPad. Choosing a cellular model does not commit you to adding a cellular service plan for the iPad, but ensures that you have immediate access to GPS/GNSS positioning services.
An alternative is to add GPS capability by using a bluetooth GPS receiver - such as BadElf, Garmin Glo, or similar.
