ClusterAutoscaler with balanceSimilarNodeGroups does not work if scale from zero

ClusterAutoscaler configured with `balanceSimilarNodeGroups` set to `true`, if there are machinesets which scales up from 0, the autoscaler will first scale in these machinesets, after they are full, then other node groups.

4.12.0-0.nightly-2022-10-05-053337

always

1. Create clusterautoscaler on gcp
apiVersion: "autoscaling.openshift.io/v1"
kind: "ClusterAutoscaler"
metadata:
  name: "default"
spec:
  balanceSimilarNodeGroups: true
  balancingIgnoredLabels: ["topology.gke.io/zone"]
  resourceLimits:
    maxNodesTotal: 20
  scaleDown:
    enabled: true
    delayAfterAdd: 10s
    delayAfterDelete: 10s
    delayAfterFailure: 10s
    unneededTime: 10s
2. Create machineautoscalers, some machineset need scale from 0
$ oc get machineset                                                                                                      
NAME                        DESIRED   CURRENT   READY   AVAILABLE   AGE
zhsungcp10-lmfbm-worker-a   1         1         1       1           128m
zhsungcp10-lmfbm-worker-b   0         0                             128m
zhsungcp10-lmfbm-worker-c   1         1         1       1           128m
zhsungcp10-lmfbm-worker-f   0         0                             128m

$ oc get machineautoscaler                                                                                                 
NAME                  REF KIND     REF NAME                    MIN   MAX   AGE
machineautoscaler-a   MachineSet   zhsungcp10-lmfbm-worker-a   1     20    39m
machineautoscaler-b   MachineSet   zhsungcp10-lmfbm-worker-b   0     19    39m
machineautoscaler-c   MachineSet   zhsungcp10-lmfbm-worker-c   1     20    13s
machineautoscaler-f   MachineSet   zhsungcp10-lmfbm-worker-f   0     19    39m
3. Create workload
4. Check machineset and log

If there are machinesets which scales up from 0, the autoscaler will first balance in these machinesets, after they are full, then scale in other node groups.

 I1010 08:39:48.865639       1 scale_up.go:481] Estimated 26 nodes needed in MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b
I1010 08:39:48.865645       1 scale_up.go:486] Capping size to max cluster total size (30)
I1010 08:39:49.605437       1 scale_up.go:591] Splitting scale-up between 2 similar node groups: {MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b, MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f}
I1010 08:39:49.605472       1 scale_up.go:601] Final scale-up plan: [{MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b 0->13 (max: 19)} {MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f 0->12 (max: 19)}]
I1010 08:39:49.605492       1 scale_up.go:700] Scale-up: setting group MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b size to 13
I1010 08:39:50.209449       1 scale_up.go:700] Scale-up: setting group MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f size to 12

$ oc get machineset                                                                                        
NAME                        DESIRED   CURRENT   READY   AVAILABLE   AGE
zhsungcp10-lmfbm-worker-a   1         1         1       1           130m
zhsungcp10-lmfbm-worker-b   13        13                            130m
zhsungcp10-lmfbm-worker-c   1         1         1       1           130m
zhsungcp10-lmfbm-worker-f   12        12                            130m

Balance in all node groups.

Other testing on gcp: 
$ oc get machineautoscaler                                                                                                                                                     
NAME                  REF KIND     REF NAME                    MIN   MAX   AGE
machineautoscaler-a   MachineSet   zhsungcp10-lmfbm-worker-a   1     10    3m41s
machineautoscaler-b   MachineSet   zhsungcp10-lmfbm-worker-b   1     10    3m55s
machineautoscaler-f   MachineSet   zhsungcp10-lmfbm-worker-f   0     10    4m15s

Add workload:
Scale-up: setting group MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f size to 10
Splitting scale-up between 2 similar node groups: {MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b, MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-a}
I1010 07:46:11.862566       1 scale_up.go:601] Final scale-up plan: [{MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b 1->3 (max: 10)} {MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-a 1->3 (max: 10)}]

--------
$ oc get machineautoscaler                                                                                          
NAME                  REF KIND     REF NAME                    MIN   MAX   AGE
machineautoscaler-a   MachineSet   zhsungcp10-lmfbm-worker-a   1     10    22m
machineautoscaler-b   MachineSet   zhsungcp10-lmfbm-worker-b   0     9     22m
machineautoscaler-f   MachineSet   zhsungcp10-lmfbm-worker-f   0     9     22m

Add workload:
 Capping size to max cluster total size (20)
I1010 08:32:19.557095       1 scale_up.go:591] Splitting scale-up between 2 similar node groups: {MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b, MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f}
I1010 08:32:19.557132       1 scale_up.go:601] Final scale-up plan: [{MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b 0->8 (max: 9)} {MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f 0->7 (max: 9)}]
I1010 08:32:19.557149       1 scale_up.go:700] Scale-up: setting group MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-b size to 8
I1010 08:32:20.161422       1 scale_up.go:700] Scale-up: setting group MachineSet/openshift-machine-api/zhsungcp10-lmfbm-worker-f size to 7

$ oc get machineset                                                                   
NAME                        DESIRED   CURRENT   READY   AVAILABLE   AGE
zhsungcp10-lmfbm-worker-a   1         1         1       1           123m
zhsungcp10-lmfbm-worker-b   8         8                             123m
zhsungcp10-lmfbm-worker-c   1         1         1       1           123m
zhsungcp10-lmfbm-worker-f   7         7                             123m