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Only sync requests 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. Add tests to verify that duplicate calls are not made. Test: atest PackageWatchdogTest#testSyncHealthCheckRequests Bug: 150114865 Bug: 146767850 Change-Id: Ic99038db0b58eecac467e62eadb8daaa6ed87e26