'Why does icu::BreakIterator::createCharacterInstance take a locale?

The Grapheme boundaries are locale independent, then why does icu::BreakIterator::createCharacterInstance take a locale.

https://unicode.org/reports/tr29/#Grapheme_Cluster_Boundaries

https://unicode-org.github.io/icu-docs/apidoc/dev/icu4c/classicu_1_1BreakIterator.html#adffa57ea9131c4a9e0cf8226c17d459a

unicodeicu


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