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This should do it

R = PolynomialRing(GF(17), 'x')
x = R.gens()[0]
y = PolynomialRing(R, 'y').gens()[0]
f =  9*y^6 - 9*x^2*y^5 - 18*x^3*y^4 - 9*x^5*y^4 + 9*x^6*y^2 + 9*x^7*y^3 + 18*x^8*y^2 - 9*x^11
f.factor()

Unfortunately, it seems that the functionality to factor over a generic polynomial ring is not implemented.