AME-302/AME-712/AME-722 -- Refactoring of locale's and applicable property files from openam-server-only to openam-locale.  A couple of additional changes to fix NPE's and latest XACML3 development.

git-svn-id: https://svn.forgerock.org/openam/trunk/openam@4182 0f4defcf-c51a-4c67-9f44-6fb5eba73c5d