I just discussed this with John. He explained that the motivation for
making it per-user was to avoid the problem where some settings are per-
user and some are system-wide, and users can't predict which is which.

Now, consider the case where you don't log in at all. You turn on your
PC, and at the login screen, the drumbeat sounds much too loud. You
wince and turn down the volume. Your parents, hearing you fiddling with
the computer, call you away to do something else, so you shut down
without logging in. When you start up your PC the next day, what should
the volume of the drumbeat sound be? The volume you set previously, of
course.

This illustrates that Ubuntu needs a system-level volume setting,
regardless of whether there is *also* a per-user volume setting. Even if
that wasn't true for volume (for example, if we had no drumbeat at the
login screen), it would be true for brightness, keyboard layout, and a
host of accessibility options that apply to the login screen.

Now, in many cases a device has only one user account. That's often the
case with a laptop, usually the case with a tablet, and almost always
the case with a phone. When there is, it would be annoying to have to
set each of those settings twice, once for the login screen and once for
everywhere else. That's the reasoning behind settings propagating from
the login screen to the user session and vice versa.

The point I tried to make is that I don't see any functional difference
between that and just having a system-wide volume setting. When B logs
in, does the sound volume get propagated from the login screen to B's
session, or doesn't it? If it does propagate, then there's no point in
momentarily showing B as having a volume that they won't actually have.
And if it doesn't propagate, then how do you avoid the annoyance of
having to set the volume twice when B's account is the only one?

You could make settings propagate if there is one user account, and not
if there's more than one. But that would mean different behavior on
different Ubuntu installations. It would introduce unpredictability,
exactly the problem that user-specific settings were intended to solve
in the first place.

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https://bugs.launchpad.net/bugs/840777

Title:
  Muting sound indicator in Unity Greeter does not mute sound on login

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