https://issues.apache.org/bugzilla/show_bug.cgi?id=53849

--- Comment #1 from Stefan Bodewig <[email protected]> ---
You are correct but I'm tempted to say it is by design:

> NOTE: the packagelist attribute allows you to specify the list of packages to 
> document outside of the Ant file. It's a much better practice to include 
> everything inside the build.xml file. This option was added in order to make 
> it easier to migrate from regular makefiles, where you would use this option 
> of javadoc. The packages listed in packagelist are not checked, so the task 
> performs even if some packages are missing or broken. Use this option if you 
> wish to convert from an existing makefile. Once things are running you should 
> then switch to the regular notation.

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