Steps:
1. Install jdk-9-ea+128_osx-x64_bin.dmg on Mac 10.9 with zh_CN or zh_TW locale
2. Run /Library/Java/JavaVirtualMachines/jdk-0.jdk/Contents/Home/bin/jcontrol

Expected result:
Could be able run JCP successfully.

Actually result:
Can't launch JCP and got below exception.
Exception in Application start method
Exception in thread "main" java.lang.RuntimeException: Exception in Application start method
at com.sun.javafx.application.LauncherImpl.launchApplication1(javafx.graphics@9-ea/LauncherImpl.java:897)
at com.sun.javafx.application.LauncherImpl.lambda$launchApplication$2(javafx.graphics@9-ea/LauncherImpl.java:188)
at java.lang.Thread.run(java.base@9-ea/Thread.java:843)
Caused by: javafx.fxml.LoadException:
/jdk.deploy.controlpanel.fx/com/sun/deploy/jcp/fxml/JCP.fxml

at javafx.fxml.FXMLLoader.constructLoadException(javafx.fxml@9-ea/FXMLLoader.java:2603)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:2581)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:2443)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3201)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3163)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3137)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3114)
at javafx.fxml.FXMLLoader.load(javafx.fxml@9-ea/FXMLLoader.java:3106)
at com.sun.deploy.jcp.Main.start(jdk.deploy.controlpanel.fx@9-ea/Main.java:43)
at com.sun.javafx.application.LauncherImpl.lambda$launchApplication1$9(javafx.graphics@9-ea/LauncherImpl.java:843)
at com.sun.javafx.application.PlatformImpl.lambda$runAndWait$12(javafx.graphics@9-ea/PlatformImpl.java:452)
at com.sun.javafx.application.PlatformImpl.lambda$runLater$10(javafx.graphics@9-ea/PlatformImpl.java:421)
at java.security.AccessController.doPrivileged(java.base@9-ea/Native Method)
at com.sun.javafx.application.PlatformImpl.lambda$runLater$11(javafx.graphics@9-ea/PlatformImpl.java:420)
at com.sun.glass.ui.InvokeLaterDispatcher$Future.run(javafx.graphics@9-ea/InvokeLaterDispatcher.java:96)
Caused by: java.lang.RuntimeException: javafx.fxml.LoadException:
/jdk.deploy.controlpanel.fx/com/sun/deploy/jcp/fxml/General.fxml

at com.sun.deploy.jcp.controller.JCP.initialize(jdk.deploy.controlpanel.fx@9-ea/JCP.java:163)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:2550)
... 13 more
Caused by: javafx.fxml.LoadException:
/jdk.deploy.controlpanel.fx/com/sun/deploy/jcp/fxml/General.fxml

at javafx.fxml.FXMLLoader.constructLoadException(javafx.fxml@9-ea/FXMLLoader.java:2603)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:2581)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:2443)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3201)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3163)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3137)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:3114)
at javafx.fxml.FXMLLoader.load(javafx.fxml@9-ea/FXMLLoader.java:3106)
at com.sun.deploy.jcp.controller.JCP.initialize(jdk.deploy.controlpanel.fx@9-ea/JCP.java:113)
... 14 more
Caused by: java.util.IllformedLocaleException: Ill-formed language: zh-hans [at index 0]
at java.util.Locale$Builder.setLocale(java.base@9-ea/Locale.java:2391)
at sun.util.locale.provider.HostLocaleProviderAdapterImpl.getCalendarLocale(java.base@9-ea/HostLocaleProviderAdapterImpl.java:556)
at sun.util.locale.provider.HostLocaleProviderAdapterImpl.access$200(java.base@9-ea/HostLocaleProviderAdapterImpl.java:57)
at sun.util.locale.provider.HostLocaleProviderAdapterImpl$1.getDateInstance(java.base@9-ea/HostLocaleProviderAdapterImpl.java:166)
at java.text.DateFormat.get(java.base@9-ea/DateFormat.java:809)
at java.text.DateFormat.get(java.base@9-ea/DateFormat.java:798)
at java.text.DateFormat.getDateInstance(java.base@9-ea/DateFormat.java:506)
at com.sun.deploy.jcp.controller.General.initialize(jdk.deploy.controlpanel.fx@9-ea/General.java:57)
at javafx.fxml.FXMLLoader.loadImpl(javafx.fxml@9-ea/FXMLLoader.java:2550)
... 21 more