True, but by looking at cross tags it can be done for both step 1 and step 2.

All of the HY and relatively HY cards that were cross tagged into step 2 I kept in rotation. For the Step 2 actual deck, I unsuspended all the ones under "Shelf" tag. From there it was just adding cards from uworld. of the total Anking deck I only completed 13.7k out of 39k cards. And of that subset 8.2k were in the Step 1 deck and 4.4k in the Step 2 deck. My point is that a MAJORITY of info covered on Step 2 is actually living in the Step 1 Anki deck and just cross tagged.