Role "All" Unable to create ToDo

What is the purpose of role “All”.

Frappe docType ToDo of module Desk has permission for the roles:

  1. All
  2. System Manager

All has more permisisons than System Manager.

However only users with role System Manager, are able to create ToDo, and any other user with any combination of role excluding System Manager, are getting following message:

Not permitted
Not allowed via controller permission check
User hs@rai.in does not have access to this document: ToDo - new-todo-njsywcfkqe
Insufficient Permission for ToDo (create)

It looks that for role All, any role should be able to create ToDo, but that is not the case.

Can anyone throw the light / share the insight?