Because Role  extend the TenantAwareModel and Seeded roles belong to the public tenant, they may be getting accidentally filtered from the response. This needs to be fixed.

Test scenario

If you are testing locally, in the rbac DB

Tenant = 1 is the public tenant, 14 seeded roles, 6 platform roles

Tenant = 2, has 5 custom roles, no seeded roles

List roles for tenant 2 should return 5 custom roles and 14 seeded roles