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So I'll provide my own answer here...Starting with OpenFlow 1.2, OVS displays VLANs as 4096 + VLAN (4096 + 66 = 4162). This has to do with the OpenFlow specifications introducing set_field as a generic action using a format called OXM TLV.

I was able to get network to flow with the vlan_vid as 66 and as 4162.