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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