You could use PDF or KF8.
The former is easier to create, and Personal Documents Service supports it. Spread-pinch or double tap to zoom. But it is a little tricky to pan around without turning the page and exiting zoom mode (because pan looks similar to 'swipe'). The zoom is really designed to enable better navigation a of multi-column PDF, so page turn gestures sort of scroll down the first column, jump to top of the next, scroll down that, then continue with next page, etc.
KF8 gives a better panning experience. Again, you spread-pinch to adjust zoom level and then just drag your finger to pan. Click the little 'X' to exit pan mode. However you'll need to use a tool like kindlegen or calibre to create KF8. But KF8 does not currently survive personal documents service (unless they have fixed this in the last week or so), so you will have to sideload them with USB cable, or use the web browser to download from Dropbox or something similar instead.
Image zoom for mobi format will only zoom to fit the screen (as with previous Kindles), so it is not really good for maps with higher resolution. Images will zoom arbitrarily with the Kindle mobile apps (iOS, Android at least), but that is not how it works on Kindle Touch.
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