diff -r 189f47d990b5 -r 580fb715b29d src/jdk.jlink/share/classes/jdk/tools/jlink/internal/plugins/SystemModulesPlugin.java
--- a/src/jdk.jlink/share/classes/jdk/tools/jlink/internal/plugins/SystemModulesPlugin.java	Mon Nov 18 23:41:06 2019 -0500
+++ b/src/jdk.jlink/share/classes/jdk/tools/jlink/internal/plugins/SystemModulesPlugin.java	Tue Nov 19 11:35:29 2019 +0000
@@ -1,5 +1,5 @@
 /*
- * Copyright (c) 2015, 2018, Oracle and/or its affiliates. All rights reserved.
+ * Copyright (c) 2015, 2019, Oracle and/or its affiliates. All rights reserved.
  * DO NOT ALTER OR REMOVE COPYRIGHT NOTICES OR THIS FILE HEADER.
  *
  * This code is free software; you can redistribute it and/or modify it
@@ -61,6 +61,7 @@
 import jdk.internal.module.Checks;
 import jdk.internal.module.DefaultRoots;
 import jdk.internal.module.IllegalAccessMaps;
+import jdk.internal.module.Modules;
 import jdk.internal.module.ModuleHashes;
 import jdk.internal.module.ModuleInfo.Attributes;
 import jdk.internal.module.ModuleInfoExtender;
@@ -291,10 +292,10 @@
 
     /**
      * Resolves a collection of root modules, with service binding, to create
-     * configuration.
+     * a Configuration for the boot layer.
      */
     private Configuration resolve(ModuleFinder finder, Set<String> roots) {
-        return Configuration.empty().resolveAndBind(finder, ModuleFinder.of(), roots);
+        return Modules.newBootLayerConfiguration(finder, roots, null);
     }
 
     /**