User account table empty

I've created a password reset form with an account user table. 

When I with my admin rights click on the button I see the form and I can select one of many accounts.

I've made this button and this form available for a role. But one of my users with this role can go to the form but there are no accounts for him to select.

There is a filter for who can access the button and the form. And this filter seems to work fine. 

There is also a filter on the account/user table. But this filter should be the same for everyone who has access to the form.

So how is it determined I can select far more account than someone else?