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Sync requests only when there are changes to report
Instead of periodically syncing requests with the same information, only call into the ExplicitHealthCheckController when the set of packages with pending health checks has changed, or a new observer has been registered. Add tests to verify that duplicate calls are not made. Test: atest PackageWatchdogTest#testSyncHealthCheckRequests Test: atest NetworkStagedRollbackTest Bug: 150114865 Bug: 146767850 Change-Id: I2926e9c7689e0ac9c4a142263ffd50a4747d016f