Hello, I used ArcMap to create these tile packages and set the minimum zoom level first to 0 with the max level at 17, and the map would not let me zoom in beyond 1:5000 without the image disappearing. This used to be that the image would still create at all zoom levels, but would just be more pixelated and that was much better than it disappearing completely. I tried again with a min level of 1 and max level of 18 and now the image disappears at 1:2500 zoom scale.
It really is preferred that the image still be present at all zoom levels, but that it is just more pixelated. I was able to do this the last time I created a NAIP tpk in ArcMap a few years ago, I'm not sure what has changed. I am going to try to make this in ArcGIS Pro next, I have migrated completely in all other ways so hopefully the tpk works the way I need it to in there, as well.