When an operator runs traffic_ctl config reload that is an explicit signal that they want the configuration reloaded. We should not second guess that by checking whether files are updated like we do today.
One use case for this is when proxy.config.disable_configuration_modification is enabled and you change configuration in memory with the API. It is surprising and confusing to have to touch records.config to restore the old values.
Consider whether we should add a --changed-only flag to only reload changed configuration. I'm leaning against that but could be persuaded.