Use of @a by op'd users results in "insufficient permissions for selector expansion"

Action taken:

Ran command

/tellraw @a  {"rawtext": [{"text": "test message, please ignore"}]} 

Cheats disabled, player listed has "operator" permissions.

Observed effect:

Received error of "insufficient permissions for selector expansion"

Expected effect:

Command runs as expected.

Other Notes:

Command runs from server console and world with cheats enabled. Command runs when specifying player gamertag explicitly. Command does not run with @p.

Unsure if this is a bug or an undocumented permission. Could find no mention of this on wiki Permission Level or Target Selectors.