VMware Cloud Director 10.6.1
This is as per design from VCD. Only the Organization Administrator has a right called Administrator View that allows it to see all VMs at the OrgVDC level.
To grant tenant users access to all VMs you have two options as mentioned below:
You can use the share option for each VM that you wish to share across all the users in the OrgVDC. To share a VM please follow the below steps:
You can create a new Role or update the existing Role with enabling the Administrator View and grant the same role to all the users to view all the entities across the OrgVDC level.
NOTE: Granting the above right will make the user view all the entities across the Datacenter or OrgVDC level.