--- java/org/apache/catalina/startup/ContextConfig.java	(revision 1468321)
+++ java/org/apache/catalina/startup/ContextConfig.java	(working copy)
@@ -2719,6 +2719,10 @@ 
                         new InputSource(fragmentFile.toURI().toURL().toString());
                     source.setByteStream(stream);
                     parseWebXml(source, fragment, true);
+                } else {
+                    // If there is no web.xml, normal folder no impact on
+                    // distributable
+                    fragment.setDistributable(true);
                 }
             } finally {
                 fragment.setURL(file.toURI().toURL());