Login as user who is part of an application.
Go to flow designer and try to create a new action -
Notice the application while creating the action is set to the application, user is in.
However when you save the flow - notice the application goes back to "global".
Release or Environment
Every instance that has flow designer plugin installed.
Due to the user not have access to write on sys_scope table.
The root cause of this case task is an ACL issue; users who does not have ACL writes to read and write on application (sys_scope) table.
If a user who does not have access to write, the action is saved as Global application/scope when saved because Global application is the default application if no application is available.