Apparently, with Windows 10 LTSC version 1809 setting the Start Menu layout in the Profile user account no longer sticks through sysprep setup. I have, however, found another way to set the start menu layout:
1) Configure the start menu the way you want it in the Profile User
2) Open a powershell window
3) Export the start menu layout with:
Export-StartLayout -UseDesktopApplicationID -Path PathAndFileName.xml

To import this layout on the target system(s) use the following in a batch script:
PowerShell.exe -Command "& {Import-StartLayout -LayoutPath PathAndFileName.xml -MountPath c:\}"

Or in an admin powershell window just:
Import-StartLayout -LayoutPath PathAndFileName.xml -MountPath c:\

See also:
https://docs.microsoft.com/en-us/windows/configuration/customize-and-export-start-layout

And for even more specifics See:
https://docs.microsoft.com/en-us/windows/configuration/start-layout-xml-desktop