Stages: if no preferred locales are specified, use the default locales #100
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If no preferred locales are specified (e.g. not as a query parameter & not in the Accept-Language header), use the default locales.
This means the app's (e.g. OpenAM's), followed by the JVM's default.
This will allow OpenAM to comply with the documented behaviour for OpenAM 13.
Specifically, this allows the RESTful user self-service APIs to work without crashing due to "java.lang.IllegalArgumentException: Cannot find suitable translation from given choices" if no locale is specified.