Per the comment at T159038#3083239, the Babel extension should not rely on using numerical headers to sort category entries, as this is incompatible with numerical collation in categories (which is now active on many wikis).
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Babel already (in the default configuration and the configuration used on Wikimedia wikis) creates "User <language>-<level>" categories, in addition to using numerical headers in the "User <language>" categories. There's nothing to do here.