Adding additional label values permission question

This might be as designed, but I thought I would check. For the member users on my boards, board permissions set to Edit Everything or Edit Content, users can’t add additional label values to label columns. The error message they receive says they must be a board owner. Admins and board owners can add and update labels. There is not listed in the Admin /permissions to assign across the instance. Is this restriction by design to protect what values can go into labels? Or is this a bug, and anyone with Edit Everything or Edit Content should are able to add additional label values?
Thanks
Bruce