The tricky part here is that the default UI language is determined by a setting in a file that is not present by default in the OO directory.
It should be at the following path: <OO_DIR>\share\registry\data\org\openoffice\Office\Linguistic.xcu
The name of the setting is UILocale in the General section. It's easier if you first start OO with any user, set the UI language and default locale in OO itself, then copy the Linguistic.xcu file from the user's OO settings folder ("<profile_base>\Application Data\OpenOffice.org2\user\registry\data\org\openoffice\Office\Linguistic.xcu") to the previously described path in the OO directory. Now you can edit this Linguistic.xcu to include only those settings that you want to have a default for all users.
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