when running jpackage create-installer with options --verbose and --win-per-user-install you get a verbose message for each file bundled:

GHT1076 : ICE91: The file 'FileId92' will be installed to the per user directory 'dirid54' that doesn't vary based on ALLUSERS value. This file won't be copied to each user's profile even if a per machine installation is desired.

I'm not sure what this means, but we should investigate and either fix something, or silence this verbose output (or at least not repeat it for all files.)