You have been subscribed to a public bug:
localectl updates /etc/default/locale when it is run as non root user:
$ localectl set-locale LANG=en_US.UTF-8
$ ls -l /etc/default/locale
-rw-r--r-- 1 root root 17 Oct 26 12:46 /etc/default/locale
My account is neither root nor in group root:
$ groups
christian adm cdrom sudo dip plugdev lpadmin sambashare
$ ls -al `which localectl`
-rwxr-xr-x 1 root root 21916 Oct 4 16:58 /usr/bin/localectl
** Affects: systemd (Ubuntu)
Importance: Undecided
Status: New
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localectl updates /etc/default/locale without root privileges
https://bugs.launchpad.net/bugs/1800297
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seeded packages, which is subscribed to systemd in Ubuntu.
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