Only load app routes if the app has already been loaded [re-merge] #18374
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#18109 was merged, but then reverted since we didn't want to have the whole mess, but the problem has come back again. During an upgrade, no apps are loaded, but the Router is used somewhere and so app routes are still loaded.
If an app isn't loaded when the router tries to load routes, it marks itself as 'not loaded', so the next time a route is requested any non-loaded routes attempt to get loaded again.
cc @icewind1991 @DeepDiver1975 @LukasReschke @PVince81
currently blocking #15914, so I'd appreciate a quick resolution on this 😄