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Assuming that @oliv's interpretation is correct, this solution might also work, although it does not use awk:

paste -d '\n ' file1 <(sed  's/^/\n/;s/, */\n\n/g' file2) | sed '/^$/d'

Given the updated requirements of the OP, this no longer seems a viable approach.

Assuming that @oliv's interpretation is correct, this solution might also work, although it does not use awk:

paste -d '\n ' file1 <(sed  's/^/\n/;s/, */\n\n/g' file2) | sed '/^$/d'

Assuming that @oliv's interpretation is correct, this solution might also work, although it does not use awk:

paste -d '\n ' file1 <(sed  's/^/\n/;s/, */\n\n/g' file2) | sed '/^$/d'

Given the updated requirements of the OP, this no longer seems a viable approach.

1
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Assuming that @oliv's interpretation is correct, this solution might also work, although it does not use awk:

paste -d '\n ' file1 <(sed  's/^/\n/;s/, */\n\n/g' file2) | sed '/^$/d'