As part of fixing ServiceLoader issue JDK-8189264, I ran into a number of test failures that turned out to be caused by the LocaleProviderAdapters implementations swallowing exceptions, i.e:

try {

   ...

} catch (Exception e) {
    // Catch any exception, and continue as if only CLDR's base locales exist.
}

This code should be re-examined to see if it can be improved, maybe the VM should terminate if the built-in locale providers are broken or insufficient permissions have been granted?