Changes to modifier keys don't work.
I am trying to assign the Escape key to the CapsLock key on my MacBook keyboard. I went to System Preferences > Keyboard > Modifier Keys... and to the right of "Caps Lock (_) Key:" selected "Escape" from the drop down. This appears to have no effect. I restarted my computer and no effect took place. I tried modifying a different key (to check if the issue was specific to caps lock) and this had no effect.
MacBook Pro (Retina, 15-inch, Late 2013), macOS Sierra (10.12.6)