This problem only impacts static builds of the JDK.

In jdk/make/lib/Lib-java.base.gmk,
$(SUPPORT_OUTPUTDIR)/modules_libs/java.base/$(LIBRARY_PREFIX)jimage.symbols is needed to create the JAVA_BASE_EXPORT_SYMBOLS_SRC list, but $(BUILD_LIBJIMAGE) needs to be added to the dependency line n order to make sure this library and symbol file have been generated.