I'm not sure if this is the correct fix, but it does make it work for my use.
Without this change, I get some message in stderr about "IMAGE_REL_AMD64_ADDR32NB relocation requires anordered section layout", and I have to rely on my old workaround for IMAGE_REL_AMD64_ADDR32NB.
With this change, the IMAGE_REL_AMD64_ADDR32NB relocations seem to work correctly.
If I print the sections that have a load address of 0, sometimes it's a zero-sized .data or .bss, but usually it's debug sections that aren't loaded with ProcessAllSections=false.