roachtest: cluster_creation failed

roachtest.cluster_creation [failed](https://teamcity.cockroachdb.com/buildConfiguration/Cockroach_Nightlies_Roachtests_RoachtestNightlyIbmBazel/20645209?buildTab=log) with [artifacts](https://teamcity.cockroachdb.com/buildConfiguration/Cockroach_Nightlies_Roachtests_RoachtestNightlyIbmBazel/20645209?buildTab=artifacts#/failover/non-system/blackhole-recv/lease=leader) on master @ [04f49359a573681a93d9724f37b6582b420eaf1b](https://github.com/cockroachdb/cockroach/commits/04f49359a573681a93d9724f37b6582b420eaf1b):

```
test failover/non-system/blackhole-recv/lease=leader failed: (test_runner.go:990).func4: in provider: ibm: failed to create instance teamcity-20645209-1761280403-219-n7cpu2-0007 in region br-sao: instance teamcity-20645209-1761280403-219-n7cpu2-0007 didn't reach stable state in 2m0s; [instance state: starting|network attached: false] [owner=test-eng]
```

Parameters:
- cloud=ibm
- coverageBuild=false
- cpu=2
- runtimeAssertionsBuild=false
- ssd=0
Help

See: [roachtest README](https://github.com/cockroachdb/cockroach/blob/master/pkg/cmd/roachtest/README.md)

See: [How To Investigate \(internal\)](https://cockroachlabs.atlassian.net/l/c/SSSBr8c7)

/cc @cockroachdb/test-eng

[This test on roachdash](https://roachdash.crdb.dev/?filter=status:open%20t:.*cluster_creation.*&sort=title+created&display=lastcommented+project) | [Improve this report!](https://github.com/cockroachdb/cockroach/tree/master/pkg/cmd/bazci/githubpost/issues)

Jira issue: CRDB-55748

Start with the roachtest README and the failure at test_runner.go:990, then inspect the linked TeamCity log and artifacts for the IBM instance that remained in starting state. Done means identifying and addressing the cluster_creation failure so the reported IBM failover test completes successfully.

Written by the indexing model from the issue text.