Wrong path. For OpenJDK 11, the file is in $JAVA_HOME/conf/security/ rather than $JAVA_HOME/lib/security/

(I had a typo in my first comment, and the issue wasn't updated when I edited the comment.)

Reported by: rolweber

https://access.redhat.com/documentation/en-us/openjdk/11/html/configuring_openjdk_11_on_rhel_with_fips/config-fips-in-openjdk#annotations:ffbd5ad6-fd8d-46ac-808e-6a253907dc3b