Wow, it is! I tried
CRTUSRPRF USRPRF(ROBDELME) USRCLS(*USER) SPCAUT(*JOBCTL *SAVSYS)
and that person had no menu options. Even those were the same special
authorities that *SYSOPR gives them.
The infocenter says this:
Sign on with a user profile that has *SAVSYS and *JOBCTL special
authorities, and also has sufficient authority to list different types of
system resources. (The QSECOFR user profile contains all of these
authorities.) This ensures that you have the authority that you need to
place the system in the necessary state and to save everything.
So, just to muck with it, I tried
CRTUSRPRF USRPRF(ROBDELME) USRCLS(*SYSOPR) SPCAUT(*NONE)
and they see option 21.
Obviously it seems like the menu system looks at USRCLS and not SPCAUT.
Because this person may see option 21, but if they try to take option 21
CPF2351 - Special authority of *JOBCTL and *SAVSYS required.
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