Description of the bug:

It is sometimes necessary to have a WORSPACE file inside a test data directory. This is particularly the case for gazelle tests using the rule gazelle_generation_test.
But when we use a pure bzlmod Bazel project, with --enable_bzlmod and --noenable_workspace options, and without a file WORKSPACE.bzlmod, Bazel fails to visit this tests data directory containing a WORKSPACE file:

ERROR: Failed to load package, for testdata, skipping: error loading package '': Unable to find package for @@rules_java_builtin//toolchains:local_java_repository.bzl: The repository '@@rules_java_builtin' could not be resolved: Repository '@@rules_java_builtin' is not defined.

• No problem with --enable_workspace option.
• No problem with an empty WORKSPACE.bzlmod
• No problem with an empty MODULE.bazel file inside the test data directory (gazelle_generation_test should support this solution).

Which category does this issue belong to?

External Dependency

What's the simplest, easiest way to reproduce this bug? Please provide a minimal example if possible.

.
├── .bazelrc
├── .bazelversion
├── BUILD.bazel
├── MODULE.bazel
└── testdata
    └── WORKSPACE

.bazelrc

common --enable_bzlmod
common --noenable_workspace
common --lockfile_mode=off

.bazelversion

7.2.0

BUILD.bazel

testfiles = glob(["testdata/**"])
print(testfiles)

MODULE.bazel

module(name = "foo")

$ bazel build :all
WARNING: Target pattern parsing failed.
ERROR: Skipping ':all': while parsing ':all': error loading package '': Unable to find package for @@rules_java_builtin//toolchains:local_java_repository.bzl: The repository '@@rules_java_builtin' could not be resolved: Repository '@@rules_java_builtin' is not defined.
ERROR: while parsing ':all': error loading package '': Unable to find package for @@rules_java_builtin//toolchains:local_java_repository.bzl: The repository '@@rules_java_builtin' could not be resolved: Repository '@@rules_java_builtin' is not defined.
INFO: Elapsed time: 0.023s
INFO: 0 processes.
ERROR: Build did NOT complete successfully

Which operating system are you running Bazel on?

Linux / amd64

What is the output of bazel info release?

release 7.2.0

If bazel info release returns development version or (@non-git), tell us how you built Bazel.

No response

What's the output of git remote get-url origin; git rev-parse HEAD ?

No response

If this is a regression, please try to identify the Bazel commit where the bug was introduced with bazelisk --bisect.

No response

Have you found anything relevant by searching the web?

No response

Any other information, logs, or outputs that you want to share?

No response