Your assessment is correct. 2.1.0 and 2.1.1 are functionally identical, but are released separately for compatibility with both stable and experimental Factorio. It's incredibly clunky, but I don't know how else to do it. I care a lot about my version numbers, so this issue bothers me a lot.
I tried your suggestion just now. Factorio 0.17 loads the mod successfully, but disables it silently, citing incompatibility. Maybe I'm doing it wrong. If you know of a working example of your suggestion, please link it here. Thanks for your help.