The full install package is applicable if Flash is not installed or there is an out of date version installed. The upgrade package is applicable only if Flash is installed but out of date. What you are seeing is expected behavior if you have an out of date version of Flash already installed and both packages approved. If you would like all approved machines to have flash installed automatically and kept up to date you only need to approve the non-upgrade package. The upgrade package is only needed if you only want to update existing installs.
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