The manual says
If there are more monsters to be placed than
allowed by the monster limit (see “Monster Limits and
the Outskirts,” page 18), the players should decide
where monsters will be placed. The players must make
this decision before monsters have been drawn from the
cup. If the players cannot agree where the monsters are
to be placed, the first player decides the placement.
I don't understand this. If there are more monsters than the monster limit, shouldn't those monsters go to the outskirts?