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The result of this is that if you have a lot (I'm not sure of the exact number, I have 22 EB stacks), you get "AWS::ElasticBeanstalk::Errors::Throttling: Rate exceeded" errors

I assume this happens because even after the environments are successfully created, pulumi is seeing a difference in the settings and attempting to update all 22

The "info" column for all the resources show [diff: ~settings] when running pulumi up

If you ask for the detailed diff - what does it show?  (It should show which properties in particular are changing)

the settings inside of the settings array are changing order

This sounds like it may be related to <https://github.com/pulumi/pulumi-terraform/issues/495>. Could you add details of your scenario there?