There appears to be some flapping occurring due to your Default scale policy triggering repeatedly. You have a custom scale policy set and have minimum and maximum capacity set to the same number. When creating a new scale set it does not allow this and it is not recommended in the Best Practices page. Did you manually edit the JSON configuration to achieve this?
Since you want a fixed instance count of 10 it would make sense to set autoscale to manual scale. Is there a reason you want a custom scale policy instead of utilizing manual scaling? I am happy to pass this information on to our service team but want to understand the goal and use case.
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