Thread: Action groups?
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Ah, now I understand what you're getting at. If there aren't any top-level actions in the project, nothing at all shows up, including the All Actions option! Doesn't matter whether it is a project or a SAL, so far as I can determine.

It does seem like a bug that there are scenarios where it might report that you have some available actions but refuse to give you access to them. Go ahead and file a bug report, and I've done likewise.