Well I tried Microsoft Keyboard Layout Creator. I created a file with the "<" and "," & ">" and "." reversed but I don't know how/where to store it so that it is selectable as the system keyboard layout. It's not
Control Panel \
Keyboard. It appears it would need to be done in
Control Panel \
Region and Language ...
Keyboards and Languages Tab but I don't know how to get the keyboard I created into the list of available keyboards. So I gave up on MKLC.
And I found
THIS
KeyTweak or hard-coding the registry seem promising.