See the forum discussion in https://wl.widelands.org/forum/topic/1446/?page=3#post-10483.
With a new config file, I can choose all languages in the Widelands menu. This works fine, the new language is saved in the config file and appears in the game. Note that there is no line "localedir=" in the config file.
At some time (I do not know when), Widelands adds a line to the config file: "localedir=<path to Widelands installation>\Widelands\locale". In this directory, there are a lot of folders, named after the languages, which contain (probably) the translated strings (e.g. locale\de\LC_MESSAGES\maps.mo).
As soon as this entry exists, there are only two languages to choose: "Try system language" and "English" (and the currently selected one, but it disappears once another language is chosen).
It seems the localedir entry is rather disturbing than needed.
The problem occured with bzr 6886 on Win7, using the download from Tino's site (http://widelands.8-schuss.de/).
Setting to confirmed because other people in the forum had the same problem (with build 18-rc1).
My three questions I asked there are still not answered: When is the localedir line created? What is it needed for? And why are not all languages shown? I guess they are the key to the solution of the problem.