The problem is that the ADMIN account that suppose to display ALL districts:
Is displaying only districts that are listed under other REDUCTION section for other users!!
Yes, that's what * means: all listed values. If you want all values instead of all listed values the leave it blank. This has not changed. It's been implemented this way for ages in Qlikview and works just the same in Qlik Sense. This is documented in the online help:
A wildcard, *, is interpreted as all (listed) values of this field, that is. a value listed elsewhere in this table. If used in one of the system fields (USERID, GROUP) in a table loaded in the access section of the script, it is interpreted as all (also not listed) possible values of this field.