The initial winning answer (see below) is from J Michael Mosley 
<jmmosley@uncc.edu>:
  We edited the file /usr/dt/config/sessionetc and commented out the "feature":
  # This code initalises the workspace menu the first time the user
  # logs in to a locale.
  #
  #if [    -f $HOME/.dt/$LANG/dtwmrc -a ! -f $HOME/.dt/$LANG/prewsmenu.dtwmrc \
  #     -o -f $HOME/.dt/dtwmrc -a ! -f $HOME/.dt/prewsmenu.dtwmrc ]
  #then
  #   # dtwmrc and no prewsmenu.dtwmrc: preserve user's customizations
  #   :
  #else
  #   if [ ! -d $HOME/.dt/$LANG ]
  #   then
  #       mkdir $HOME/.dt/$LANG
  #   fi
  #   if [ ! -d $HOME/.dt/wsmenu ]
  #   then
  #       dtaction RestoreWsmenuDir;
  #   fi
  #   if [ ! -f $HOME/.dt/$LANG/dtwmrc ]
  #   then
  #       dtaction RestoreDtwmrc;
  #       dtaction UpdateWorkspaceMenu;
  #   elif [ $HOME/.dt/wsmenu -nt $HOME/.dt/$LANG/dtwmrc ]
  #   then
  #       dtaction UpdateWorkspaceMenu;
  #   fi
  #fi
I attempted to make this "neat" by copying the file into 
/etc/dt/config/sessionetc and then editing it. This did not over-ride the 
original in /usr/dt/. My understanding is that the editing of a file under 
/usr/dt/ should be unneccesary if a matching /etc/dt/ file exists, so I have 
filed a bug report with Sun service. I'll re-summarize if they offer a better 
solution.
Thanks to all the human respondants:
  J Michael Mosley <jmmosley@uncc.edu>
  Ofer Licht <ofer@atc.creative.com>
  Rob <rouellet@ebmail.gdeb.com>
  Imre.Kolos@eth.ericsson.se (Imre Kolos)
  Roger Fujii <rmf@lookhere.com>
> QUESTION:
> Has anyone found a neat, system-wide way to subvert the Solaris 7 CDE 
> automagic workspace menu creation program?
> 
> TEMPORARY SOLUTION:
> The not-so-neat method is:
>   cp -p  /etc/dt/config/C/sys.dtwmrc  ~/.dt/C/dtwmrc
>   cp -p  /etc/dt/config/C/sys.dtwmrc  ~/.dt/C/wsmenu.dtwmrc
>   cp -p  /etc/dt/config/C/sys.dtwmrc  ~/.dt/C/prewsmenu.dtwmrc
> which seems to override the automagic replacement of our desired menu.
> 
> BACKGROUND:
> My department has a workspace menu (right-click on the background outside a 
> window) which is configured with all the software we want the users to access 
> easily. This configuration is in the file /etc/dt/config/C/sys.dtwmrc which 
> over-rides the default /usr/dt/config/C/sys.dtwmrc file. For each user who is 
> new to the Solaris 7 boxes, we get this behavior:
>   log in to Solaris 7 box
>   right-click and get the good departmental menu exactly once
>   right-click and get the generated menu every time afterwards
> 
> I can repeat this all day (I just did) by removing the contents of ~/.dt/C/ 
> and then logging in again. While I was searching for instances of "dtwmrc" to 
> trace the problem I found a likely culprit:
> 	/usr/dt/bin/sdtdir2dtwmrc
> This program appears, based on the man page, to search the directory tree 
> starting at /usr/dt/config/C/wsmenu and create menu items based on the files 
> and directories therein.
> 
> I cannot find any reference to a "nice" way to disable this "feature", and it 
> is completely undocumented on docs.sun.com web site, per repeated searches.
> 
> Any recommendations or pointers to further documentation are welcome. I'd 
> prefer not to have to make three copies of our menu settings in every single 
> user's directory.
> 
> Thanks, Allan
-- Allan West awest@stat.ufl.edu http://www.stat.ufl.edu/~awest the "Good Times/Penpal Greetings" virus is a HOAX! Please do not report it or forward warnings about it.
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