Update `create-cluster` pipeline to be more live-like

[mikebell]

Background

When we apply changes in live eks and coponents terraform levels are applied in different steps in concourse. Our create-cluster pipeline does it all at once. Both should work in the same way to reduce the differences between pipelines. Update our create-cluster pipeline to split out into multiple steps.

Overall this should also improve readability and performance when expanding build logs in concourse.