From what I understand, the only difference is the number of viable yeast cells that come in the package. So for Activators, you should make a starter, for Propagators, you definitely need to make a starter.
The Fiesty(sic) Goat Brewery est. 2007 & Clusterfuggle Experimental Ales est. 2009
Planned: sLambic II, Flanders Red II
Primary: Saison, Berliner Weisse, Dark Mild, sLambic I
Secondary: Orange Blossom Mead, Flanders Red I
Kegged: Fat Man Porter w/ 1469, Fat Man Porter w/ 005, Centennial Falcon w/ Conan, Centennial Falcon w/ Denny's, Barrel-aged Fat Man Porter, Belgian Dark Strong
Bottled: Flanders Red I