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See bug #133901 comment #45. http://bits.netbeans.org/netbeans/trunk/maven-snapshot/ contains NBMs which lack locale JARs. This means that the nbm:populate-repository goal was run on an IDE build which did not (yet?) contain these JARs, or did not list them in */update_tracking/*.xml. Must be fixed by the time the RELEASE71 bits are uploaded to the non-snapshot repository.
The issue is fixed for 71. An additional work need to done for trunk.
Verified in 7.1 using test case from bug #205013 - when launched with --locale ru, UI is in Russian as expected.
The issue is valid for the trunk only. All releases, milestones etc. are OK. Marked as NO72.
Since the change in build infrastructure, only ML artifacts are generated. So this issue should be fixed as well.
http://bits.netbeans.org/netbeans/trunk/maven-snapshot/org/netbeans/api/org-netbeans-api-java/SNAPSHOT/org-netbeans-api-java-20121028.040228-1.nbm has four locale JARs so I think fixed.