incremental testsuite: don't write subsequent step files until they are needed #11257
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Description
This matters with namespace packages enabled - since an (otherwise) empty folder with
some .2 files in it will be considered a namespace package. This is
truer - by only writing the files at the point of the step. This helps
unblock #9636
Test Plan
I confirmed that this helps fix some of the failures in #9636. I confirmed all preexisting tests continue to work.