I went to ebay, as I had just been looking at these not that long ago. I found a lot of those you speak of and the first thing I thought was that they looked like factory errors. Seems like most of the bags have the images centered, but these 4 are close to the top. It's maybe possible that the print was off for some of these and resulted in "miscut" bags.
I don't know enough about the issue, but it would appear they were probably not issued more than one time.
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Looking for: Unique Steve Garvey items, select Dodgers Postcards & Team Issue photos
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