Github user osma commented on the issue:

    https://github.com/apache/jena/pull/237
  
    I agree with the other commenters, the general order should be (lang, lex) 
to avoid potentially inconsistent ordering. Also the language tag may not match 
any Locale. We also need to have unit tests that verify that the code works in 
corner cases like this.
    
    But what about subtags like `en-US` and `en-GB`? If the language tag is the 
primary sort key, then all `en-GB` values would sort before `"a"@en-US`, which 
I think would be confusing for most users.
    The sort order and collation locale could be based on just the main tag 
(`en` in this case) ignoring the subtags, but I'm quite sure there is some 
language subtag out there in the world that requires a different collation 
order from that of the main language...


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