**Build scan:**
https://gradle-enterprise.elastic.co/s/aodpvg6m2oba4/tests/:x-pack:plugin:ilm:internalClusterTest/org.elasticsearch.xpack.ilm.DataTiersMigrationsTests/testUserOptsOutOfTierMigration

**Reproduction line:**
`./gradlew ':x-pack:plugin:ilm:internalClusterTest' --tests "org.elasticsearch.xpack.ilm.DataTiersMigrationsTests.testUserOptsOutOfTierMigration" -Dtests.seed=D3FF350541188AFA -Dtests.locale=ar-IQ -Dtests.timezone=Asia/Famagusta -Druntime.java=18`

**Applicable branches:**
8.1

**Reproduces locally?:**
No

**Failure history:**
https://gradle-enterprise.elastic.co/scans/tests?tests.container=org.elasticsearch.xpack.ilm.DataTiersMigrationsTests&tests.test=testUserOptsOutOfTierMigration

**Failure excerpt:**
```
java.lang.AssertionError: 
Expected: is "warm"
     but: was "new"

  at org.hamcrest.MatcherAssert.assertThat(MatcherAssert.java:18)
  at org.junit.Assert.assertThat(Assert.java:956)
  at org.junit.Assert.assertThat(Assert.java:923)
  at org.elasticsearch.xpack.ilm.DataTiersMigrationsTests.lambda$testUserOptsOutOfTierMigration$3(DataTiersMigrationsTests.java:192)
  at org.elasticsearch.test.ESTestCase.assertBusy(ESTestCase.java:1070)
  at org.elasticsearch.xpack.ilm.DataTiersMigrationsTests.testUserOptsOutOfTierMigration(DataTiersMigrationsTests.java:187)
  at jdk.internal.reflect.DirectMethodHandleAccessor.invoke(DirectMethodHandleAccessor.java:104)
  at java.lang.reflect.Method.invoke(Method.java:577)
  at com.carrotsearch.randomizedtesting.RandomizedRunner.invoke(RandomizedRunner.java:1758)
  at com.carrotsearch.randomizedtesting.RandomizedRunner$8.evaluate(RandomizedRunner.java:946)
  at com.carrotsearch.randomizedtesting.RandomizedRunner$9.evaluate(RandomizedRunner.java:982)
  at com.carrotsearch.randomizedtesting.RandomizedRunner$10.evaluate(RandomizedRunner.java:996)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at org.apache.lucene.util.TestRuleSetupTeardownChained$1.evaluate(TestRuleSetupTeardownChained.java:44)
  at org.apache.lucene.util.AbstractBeforeAfterRule$1.evaluate(AbstractBeforeAfterRule.java:43)
  at org.apache.lucene.util.TestRuleThreadAndTestName$1.evaluate(TestRuleThreadAndTestName.java:45)
  at org.apache.lucene.util.TestRuleIgnoreAfterMaxFailures$1.evaluate(TestRuleIgnoreAfterMaxFailures.java:60)
  at org.apache.lucene.util.TestRuleMarkFailure$1.evaluate(TestRuleMarkFailure.java:44)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl$StatementRunner.run(ThreadLeakControl.java:375)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl.forkTimeoutingTask(ThreadLeakControl.java:824)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl$3.evaluate(ThreadLeakControl.java:475)
  at com.carrotsearch.randomizedtesting.RandomizedRunner.runSingleTest(RandomizedRunner.java:955)
  at com.carrotsearch.randomizedtesting.RandomizedRunner$5.evaluate(RandomizedRunner.java:840)
  at com.carrotsearch.randomizedtesting.RandomizedRunner$6.evaluate(RandomizedRunner.java:891)
  at com.carrotsearch.randomizedtesting.RandomizedRunner$7.evaluate(RandomizedRunner.java:902)
  at org.apache.lucene.util.AbstractBeforeAfterRule$1.evaluate(AbstractBeforeAfterRule.java:43)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at org.apache.lucene.util.TestRuleStoreClassName$1.evaluate(TestRuleStoreClassName.java:38)
  at com.carrotsearch.randomizedtesting.rules.NoShadowingOrOverridesOnMethodsRule$1.evaluate(NoShadowingOrOverridesOnMethodsRule.java:40)
  at com.carrotsearch.randomizedtesting.rules.NoShadowingOrOverridesOnMethodsRule$1.evaluate(NoShadowingOrOverridesOnMethodsRule.java:40)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at org.apache.lucene.util.TestRuleAssertionsRequired$1.evaluate(TestRuleAssertionsRequired.java:53)
  at org.apache.lucene.util.AbstractBeforeAfterRule$1.evaluate(AbstractBeforeAfterRule.java:43)
  at org.apache.lucene.util.TestRuleMarkFailure$1.evaluate(TestRuleMarkFailure.java:44)
  at org.apache.lucene.util.TestRuleIgnoreAfterMaxFailures$1.evaluate(TestRuleIgnoreAfterMaxFailures.java:60)
  at org.apache.lucene.util.TestRuleIgnoreTestSuites$1.evaluate(TestRuleIgnoreTestSuites.java:47)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl$StatementRunner.run(ThreadLeakControl.java:375)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl.lambda$forkTimeoutingTask$0(ThreadLeakControl.java:831)
  at java.lang.Thread.run(Thread.java:833)

```
x-pack/plugin/ilm/src/test/java/org/elasticsearch/xpack/ilm/PolicyStepsRegistryTests.java
Step.StepKey errorStepKey = new Step.StepKey(randomAlphaOfLengthBetween(1, 10), randomAlphaOfLengthBetween(1, 10), ErrorStep.NAME);
        Step expectedStep = new ErrorStep(errorStepKey);
        Index index = new Index("test", "uuid");
        Map<Index, List<Step>> indexSteps = Collections.singletonMap(index, Collections.singletonList(expectedStep));
        PolicyStepsRegistry registry = new PolicyStepsRegistry(null, null, null, NamedXContentRegistry.EMPTY, null, null);
        Step actualStep = registry.getStep(emptyMetadata(index), errorStepKey);
        assertThat(actualStep, equalTo(expectedStep));
    }
    public void testGetStepUnknownPolicy() {
        PolicyStepsRegistry registry = new PolicyStepsRegistry(null, null, null, NamedXContentRegistry.EMPTY, null, null);
        IllegalArgumentException e = expectThrows(
            IllegalArgumentException.class,
            () -> registry.getStep(emptyMetadata(new Index("test", "uuid")), MOCK_STEP_KEY)
        );
        assertThat(
            e.getMessage(),
            containsString(
                "failed to retrieve step {\"phase\":\"mock\",\"action\":\"mock\",\"name\":\"mock\"}" + " as index [test] has no policy"
            )
        );
    }
    public void testGetStepForIndexWithNoPhaseGetsInitializationStep() {
        Client client = mock(Client.class);
        Mockito.when(client.settings()).thenReturn(Settings.EMPTY);
        LifecyclePolicy policy = LifecyclePolicyTests.randomTimeseriesLifecyclePolicy("policy");
        LifecyclePolicyMetadata policyMetadata = new LifecyclePolicyMetadata(policy, Collections.emptyMap(), 1, randomNonNegativeLong());
        IndexMetadata indexMetadata = IndexMetadata.builder("test")
            .settings(
                Settings.builder()
                    .put("index.number_of_shards", 1)