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Solved
Start menu layout cannot be changed
Having just installed an evaluation copy of Windows Server 2019, I cannot make any changes to the start menu layout. For example; unchecking "Show app list in Start menu" from the Start menu settings...
https://support.microsoft.com/help/4490481 - the KB doesn't specifically mention this bug, but the fix is included in this update. You can download from here: Microsoft Catalog
I managed to hide the all apps list via a registry change, but now the button to open the all apps list is completely missing. Something tells me WS2019 wasn't ready to be released... The documents and pictures buttons are also useless and fail to open explorer.
If you add any file to the "c:\ProgramData\Microsoft\Windows\Start Menu" folder (or in user profile Start Menu folder), it will cause the start menu to be updated. But this is a bug.