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This reverts commit ef9e7b1a1365c07ab0df2e2016c4442c3963c2c7 with the following changes to accommodate an embedder for whom the original optimizations caused issues: * Ensure stable order in the backing stores presented to the embedder. This is a pessimization that will be reverted when the embedder migrates. Tracked in https://github.com/flutter/flutter/issues/51228 * Forego the optimization where the unused layers would be collected before allocation of new layers needs to happen. This is a pessimization that will be reverted when the embedder migrates. Tracked in https://github.com/flutter/flutter/issues/51229 More context in b/146142979.