diff --git a/src/main/java/org/apache/commons/lang3/LocaleUtils.java b/src/main/java/org/apache/commons/lang3/LocaleUtils.java
index b57e3c04f..dbade05fc 100644
--- a/src/main/java/org/apache/commons/lang3/LocaleUtils.java
+++ b/src/main/java/org/apache/commons/lang3/LocaleUtils.java
@@ -311,6 +311,7 @@ public class LocaleUtils {
      */
     public static Locale toLocale(final String str) {
         if (str == null) {
+            // TODO Should this return the default locale?
             return null;
         }
         if (str.isEmpty()) { // LANG-941 - JDK 8 introduced an empty locale where all fields are blank