Login Items - ongoing Safari issue

Over many iterations of macOS, and on many Macs, this has never worked...

I set Safari to open on login. It 'opens' the app, according to the Dock marker below it, but there is no window until I manually click on the Dock icon.

This is the case whether it is set to open on the Dock icon and/or in System Settings.

I can see no reason for this, every other app of the nine which I set to open actually open.

Any ideas?