In the New Testament, the definition of "all" is contextual. To see how it works, let me give an everyday example.
Suppose a family has a bowl of oranges sitting on the kitchen counter, and they have another bag of oranges sitting in the pantry. After the family returns from a two week vacation mother says, "Oh my, all of the oranges are covered with mold." In this example, her usage of "all" is limited to those oranges sitting on the counter. She hasn't yet looked at the oranges sitting in the pantry.
The New Testament uses the term this way also. Consider the following verse, where Paul qualifies his statement about "all men" with a word about believers.
1 Timothy 4:10 For it is for this we labor and strive, because we have fixed our hope on the living God, who is the Savior of all men, especially of believers.
Many passages referring to "all men" suggest inclusion, as if to say, "There is not a social group left out." In those cases, the term "all" doesn't mean "each and every individual" it means each and every subgroup of humanity." For instance,
1 Timothy 2:1-3 First of all, then, I urge that entreaties and prayers, petitions and thanksgivings, be made on behalf of all men, for kings and all who are in authority, so that we may lead a tranquil and quiet life in all godliness and dignity. This is good and acceptable in the sight of God our Savior, who desires all men to be saved and to come to the knowledge of the truth."
In this passage, Paul makes a clear and direct appeal regarding the importance of praying for those in positions of power, including kings and all who hold authority. He seems to be urging his readers to ensure that no one is excluded from their prayers, even those they may not personally admire or who may have harsh or unjust tendencies. It’s as though he is saying, "Regardless of your feelings toward them—perhaps you find them to be unkind or oppressive—offer up your prayers for them. Remember, God has a profound desire for every individual to come to a true understanding of the faith, which includes even those who lead nations and exert influence over society." This call to prayer highlights the idea of compassion and the hope that everyone, including political leaders, can find their way to the truth.