OS X Keyboard Preferences Get Lost

OS X keyboard preferences
OS X keyboard preferences
(click to enlarge)

Why won't my Mac reliably retain modifier key changes in preferences? As shown in the screenshot, I regularly make my CapsLock key into a control key. As an emacs user, that's much better for me. I was very glad when Apple added this as part of the OS. But about one out of three times OS X loses my preference at reboot. This doesn't happen with other preferences, so why this one?

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Last modified: Thu Oct 10 10:47:19 2019.