Actions, once loaded, are kept as part of your general preferences, which are stored in your user account. All your preferences are loaded from here when the application starts up, and, crucially, rewritten on every application exit.
So two things can happen here. One, folder permissions in the operating system may be incorrectly set or corrupted.
The other is irregular shutdowns or crashes. This can corrupt the Preferences files themselves, and that can be fixed by resetting preferences. The most complete and reliable method is to move the whole Adobe Photoshop 2026 Settings folder to your desktop, allowing a fresh one to be rebuilt.
You've already saved out your actions to .atn, so that's covered. Do the same for brushes and any other customizations you want to keep. Shortcuts and workspaces can usually be copied from the old Settings folder and pasted into the new.
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