increase limit on locale name length from 15 to 23 bytes

increase limit on locale name length from 15 to 23 bytes

the old limit was one byte too short to support locale names of the
form xx_XX.UTF-8@modifier where modifier is more than 3 bytes, a form
which various real-world locale names take. the problem could be
avoided by omitting the useless ".UTF-8" part, but users may need to
have it present when operating on mixed-libc systems or when it will
be carried over (e.g. across ssh) to other systems.

the new limit is chosen sufficient for existing/reasonable locale
names while still keeping the size of setlocale's static buffer small.

also add locale_impl.h to the Makefile's list of headers which force
rebuild of source files, to prevent dangerously inconsistent object
files from getting used after this change.