Retriving all users with REST API not working

The problem may be pagination

The API only returns 10 results per page, and needs follow up requests to fetch the rest. WP includes a HTTP header that tells you how many total results and the number of pages. It has a hard limit of 100 per page maximum, if you request 200, you will be capped to 100.

So your missing users may be on page 2 or 3 etc

I strongly recommend reading the REST API handbook on the official developer site, here is the page detailing pagination:

https://developer.wordpress.org/rest-api/using-the-rest-api/pagination/

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