AutoCAD by default creates two tabs, Layout1 and Layout2. These are empty paperspaces intended to give AutoCAD users a head-start in creating drawing layouts. These tabs are not Intent-controlled. When using Intent and creating Intent-controlled layouts, these tabs are completely ignored, as are any other layout tabs not created by Intent. They can be deleted if desired.
How does Intent populate the layout tabs if it doesn't demand any layouts? It evaluates a special rule on the root, AllLayouts. This is simply a list of Layout Parts. Each is asked for its LayoutName, and this is used to put the text on the tab. This is the only demand made on layouts when operating in modelspace. Without an AllLayouts rule on the root, no Intent-generated tabs will appear.