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Microsoft has announced that Roaming of taskbar settings is removed in Windows 10 1909.
Just replace the C:\Users\Default\AppData\Local\Microsoft\Windows\Shell defaultlayouts.xml with a custom xml and exported from powershell. Then apply it to your golden image, and that way any computer with it has this custom start menu by default and anyone can change their startmenu after logging in.
Have a try.
Check this similar case for a hint:
import-startlayout no longer working in 1909
https://www.reddit.com/r/sysadmin/comments/e70u4l/importstartlayout_no_longer_working_in_1909/
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Regards