config: merge/append for local values #15982
Merged
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It seems that this somehow got lost in the commit/rebase shuffle and wasn't caught by the tests that did make it because they were all using just one file.
As a result of this bug, locals would fail to work correctly in any configuration with more than one .tf file.
Along with restoring the append/merge behavior, this also reworks some of the tests to exercise the multi-file case as better insurance against regressions of this sort in future.
This fixes #15969.