base-files: create /usr/lib/locale dir

Lsbtest shows that /usr/lib/locale dir is lost, so create it

Signed-off-by: Roy.Li <rongqing.li@windriver.com>
Signed-off-by: Saul Wold <sgw@linux.intel.com>
Signed-off-by: Richard Purdie <richard.purdie@linuxfoundation.org>