SF: Commit created layers without using transactions

This solves a couple of issues:
1. This will remove the need to maintain a transaction
queue and a pending transaction queue. If we remove
one of the queues, we have to maintain transactions
by apply tokens and layer creation transactions will
create an order dependency between apply tokens.

2. For transaction tracing, layer creations are
tracked at the layer creation binder call. Tracking
internal layer creation transactions as well will
create an invalid state since the transaction is
a side effect not a client request.

Test: presubmit
Bug: 200284593
Change-Id: Ibfdf403dd0129801fcfb4c64229616d48f84fe9b