Resolution
Access Governance Suite is multi-lingual. The language that gets displayed is determined by the locale in the HTTP request and is configured in the browser. More information on this is available at http://www.w3.org/International/questions/qa-lang-priorities.
If you want to create a message catalog for a specific language, you need to use the following naming schema for the file:
iiqMessages_[Locale code].properties
Example naming a French Canadian message:
iiqMessages_fr_CA.properties