The inner plate sets on the bearing. No need for the outer plate. But it's just double stacked. That wouldn't keep the axle from setting deep enough. I used an early B body tapered axle housing with standard flange axles long ago. The housing wasn't bored deep enough to allow the axle to fully seat. After removing the inner seals it worked fine. However in this case it appears the axles are to short. If they set in deeper? Then the flange wouldn't line up with the brakes.
Doug
Doug