Per 802.11 Standard, section 13.8.2 FT Auth sequence: contents of first message:
If present, the RSNE shall be set as follows:
Version field shall be set to 1.
PMKID Count field shall be set to 1.
PMKID List field shall contain the PMKROName.
Multiple PMKIDs are allowed in certain situations. However, if I am understanding the standard correctly, this does not seem to be one though, and the supplicant is passing two PMKIDs.
Have you seen this issue with any device that is not running Windows? What about Windows with a non-Intel driver?