This is a known issue with the DITA OT for PDF2 (Book via RenderX in our list of "deliverables"). Since the code used for the "XMetaL Enhanced PDF via RenderX XEP" deliverable essentially duplicated that code the behavior is inherited.
There is a bug logged against the DITA OT for the issue, along with a discussion of how one person has attempted to address this for the position of their TOC and some notes about how people could do something similar for the Index position:
https://sourceforge.net/tracker/index.php?func=detail&aid=2837095&group_id=132728&atid=725074