#94325 exposes some raciness in these tests that was hidden before.

**Build scan:**
https://gradle-enterprise.elastic.co/s/usugfk2dh6rti/tests/:x-pack:plugin:ilm:test/org.elasticsearch.xpack.ilm.IndexLifecycleRunnerTests/testRunStateChangePolicyWithNextStep

**Reproduction line:**
```
./gradlew ':x-pack:plugin:ilm:test' --tests "org.elasticsearch.xpack.ilm.IndexLifecycleRunnerTests.testRunStateChangePolicyWithNextStep" -Dtests.seed=58594895CA2093F1 -Dtests.locale=fr-BE -Dtests.timezone=US/Aleutian -Druntime.java=20
```

**Applicable branches:**
main

**Reproduces locally?:**
Yes

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

**Failure excerpt:**
```
java.lang.AssertionError: failed to register ILM history

  at __randomizedtesting.SeedInfo.seed([58594895CA2093F1:CD17BBC3898946E8]:0)
  at org.elasticsearch.xpack.ilm.IndexLifecycleRunnerTests.lambda$testRunStateChangePolicyWithNextStep$11(IndexLifecycleRunnerTests.java:376)
  at java.util.Optional.orElseThrow(Optional.java:403)
  at org.elasticsearch.xpack.ilm.IndexLifecycleRunnerTests.testRunStateChangePolicyWithNextStep(IndexLifecycleRunnerTests.java:376)
  at jdk.internal.reflect.DirectMethodHandleAccessor.invoke(DirectMethodHandleAccessor.java:104)
  at java.lang.reflect.Method.invoke(Method.java:578)
  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.tests.util.TestRuleSetupTeardownChained$1.evaluate(TestRuleSetupTeardownChained.java:48)
  at org.apache.lucene.tests.util.AbstractBeforeAfterRule$1.evaluate(AbstractBeforeAfterRule.java:43)
  at org.apache.lucene.tests.util.TestRuleThreadAndTestName$1.evaluate(TestRuleThreadAndTestName.java:45)
  at org.apache.lucene.tests.util.TestRuleIgnoreAfterMaxFailures$1.evaluate(TestRuleIgnoreAfterMaxFailures.java:60)
  at org.apache.lucene.tests.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:390)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl.forkTimeoutingTask(ThreadLeakControl.java:843)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl$3.evaluate(ThreadLeakControl.java:490)
  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.tests.util.AbstractBeforeAfterRule$1.evaluate(AbstractBeforeAfterRule.java:43)
  at com.carrotsearch.randomizedtesting.rules.StatementAdapter.evaluate(StatementAdapter.java:36)
  at org.apache.lucene.tests.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.tests.util.TestRuleAssertionsRequired$1.evaluate(TestRuleAssertionsRequired.java:53)
  at org.apache.lucene.tests.util.AbstractBeforeAfterRule$1.evaluate(AbstractBeforeAfterRule.java:43)
  at org.apache.lucene.tests.util.TestRuleMarkFailure$1.evaluate(TestRuleMarkFailure.java:44)
  at org.apache.lucene.tests.util.TestRuleIgnoreAfterMaxFailures$1.evaluate(TestRuleIgnoreAfterMaxFailures.java:60)
  at org.apache.lucene.tests.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:390)
  at com.carrotsearch.randomizedtesting.ThreadLeakControl.lambda$forkTimeoutingTask$0(ThreadLeakControl.java:850)
  at java.lang.Thread.run(Thread.java:1623)

```
test/framework/src/main/java/org/elasticsearch/test/ClusterServiceUtils.java
);
        clusterService.setNodeConnectionsService(createNoOpNodeConnectionsService());
        ClusterState initialClusterState = ClusterState.builder(new ClusterName(ClusterServiceUtils.class.getSimpleName()))
            .nodes(DiscoveryNodes.builder().add(localNode).localNodeId(localNode.getId()).masterNodeId(localNode.getId()))
            .putTransportVersion(localNode.getId(), TransportVersion.CURRENT)
            .blocks(ClusterBlocks.EMPTY_CLUSTER_BLOCK)
            .build();
        clusterService.getClusterApplierService().setInitialState(initialClusterState);
        clusterService.getMasterService().setClusterStatePublisher(createClusterStatePublisher(clusterService.getClusterApplierService()));
        clusterService.getMasterService().setClusterStateSupplier(clusterService.getClusterApplierService()::state);
        clusterService.start();
        return clusterService;
    }
    public static NodeConnectionsService createNoOpNodeConnectionsService() {
        return new NodeConnectionsService(Settings.EMPTY, null, null) {
            @Override
            public void connectToNodes(DiscoveryNodes discoveryNodes, Runnable onCompletion) {
                
                onCompletion.run();
            }
            @Override
            public void disconnectFromNodesExcept(DiscoveryNodes nodesToKeep) {
                
            }
        };
    }
    public static ClusterStatePublisher createClusterStatePublisher(ClusterApplier clusterApplier) {
        return (clusterStatePublicationEvent, publishListener, ackListener) -> {
            setAllElapsedMillis(clusterStatePublicationEvent);
            clusterApplier.onNewClusterState(