I think I'm confused about the question? I would think (without nations/countries/territories) a map would be divided into hemispheres, or continents, then by regions ... then cities then landmarks or points of interest??
Do they have counties? Are we talking about tribal peoples? They might have clan boundaries?
I don't know if it will help in writing a program, but a culture that had no organization of its' people might divide maps into sections based on the geography "mountain area" "plains area", etc?
Sorry I wish I understood the question better. I hope someone smarter than me can answer your question soon