creating a jdk installer using the --license-file option causes an error:
for example:
$JDK_HOME/bin/jpackage create-installer \
--installer-type msi \
--output output \
--name java-sandbox \
--runtime-image jdk13 \
--app-version 13.0 \
--license-file license.txt \
results in:
java.io.IOException: Exec failed with code 103 command [[C:\cygwin\home\aherrick\devtools\wix\light.exe, -nologo, -spdb, -sice:60, C:\cygwin\tmp\jdk.jpackage14558227880657657446\tmp\java-sandbox.wixobj, -ext, WixUtilExtension, -ext, WixUIExtension, -loc, C:\cygwin\tmp\jdk.jpackage14558227880657657446\config\MsiInstallerStrings_en.wxl, -out, C:\cygwin\home\aherrick\packager\windows\output\java-sandbox-13.0.msi] in C:\cygwin\home\aherrick\packager\windows\jdk13

The same problem does not occur with an application installer such as:
$JDK_HOME/bin/jpackage create-installer \
--installer-type exe \
--input ../input-jars \
--output output \
--name simple \
--main-jar hello.jar \
--main-class hello \
--license-file license.txt \

works fine.