Currently, jcmd has a hard dependency on the SA:

$cat jdk/src/jdk.jcmd/share/classes/module-info.java
module jdk.jcmd {
    requires jdk.attach;
    requires jdk.jvmstat;
    requires jdk.hotspot.agent; // until JDK-8059035 is complete
}

This will break every platform which does not implement the SA.