roachtest: cluster_creation failed

roachtest.cluster_creation [failed](https://teamcity.cockroachdb.com/buildConfiguration/Cockroach_Nightlies_Roachtests_RoachtestNightlyIbmBazel/21046217?buildTab=log) with [artifacts](https://teamcity.cockroachdb.com/buildConfiguration/Cockroach_Nightlies_Roachtests_RoachtestNightlyIbmBazel/21046217?buildTab=artifacts#/tpcc-nowait/literal/w=1000/nodes=5/cpu=16) on master @ [33e99ded03cf98616646cab43d1edf579e49fb72](https://github.com/cockroachdb/cockroach/commits/33e99ded03cf98616646cab43d1edf579e49fb72):

```
test tpcc-nowait/literal/w=1000/nodes=5/cpu=16 failed: (test_runner.go:998).func4: in provider: ibm: failed to create instance teamcity-21046217-1769748096-313-n6cpu16-0001 in region br-sao: instance teamcity-21046217-1769748096-313-n6cpu16-0001 didn't reach stable state in 2m30s; [instance state: starting|network attached: false]
failed to create instance teamcity-21046217-1769748096-313-n6cpu16-0005 in region br-sao: instance teamcity-21046217-1769748096-313-n6cpu16-0005 didn't reach stable state in 2m30s; [instance state: starting|network attached: false]
failed to create instance teamcity-21046217-1769748096-313-n6cpu16-0003 in region br-sao: instance teamcity-21046217-1769748096-313-n6cpu16-0003 didn't reach stable state in 2m30s; [instance state: starting|network attached: false]
failed to create instance teamcity-21046217-1769748096-313-n6cpu16-0002 in region br-sao: instance teamcity-21046217-1769748096-313-n6cpu16-0002 didn't reach stable state in 2m30s; [instance state: starting|network attached: false]
failed to create instance teamcity-21046217-1769748096-313-n6cpu16-0004 in region br-sao: instance teamcity-21046217-1769748096-313-n6cpu16-0004 didn't reach stable state in 2m30s; [instance state: starting|network attached: false] [owner=test-eng]
```

Parameters:
- cloud=ibm
- coverageBuild=false
- cpu=16
- diskCount=0
- runtimeAssertionsBuild=false
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-59248

Start with the linked TeamCity log and the roachtest README, then inspect test_runner.go around line 998 and the IBM provider path used by the cluster_creation test. Determine why the instances remain in starting state without network attachment, and verify that the tpcc-nowait cluster_creation run completes successfully after the issue is addressed.

Written by the indexing model from the issue text.