why is MRP planned safety stock pegged as quantity 0, even when profile option msc_make_ss_transient

We are seeing a high PAB for items in our ASCP plan, and I am trying to find out what could be causing this.  The planned orders are for higher amounts than what we would expect when looking at the horizontal plan, and seem to be caused by maintaining a high safety stock level. 

We have MRP planned safety stock enabled, and the profile option "msc_make_ss_transient" is set to NO.  The safety stock pegging quantity on the pwb is showing as zero, indicating that it is transient safety stock, but this is opposite to the profile option.  The plan also looks to be treating the safety stock as non-transient as the planned order quantities are a lot higher than we would expect.  If we take the safety stock out of the equation, ie treat it as non-transient, then the plan looks more reasonable.  We want to be able to be flexible with the safety