protected void setActions(Set<String> actions) {
        if (this.actions != null && this.actions.equals(actions)) {
            return;
        }
        this.actions = actions;
        setParts(domain, actions, targets);
    }
Creates a domain permission with *all* actions for *all* targets;
core/src/main/java/org/apache/shiro/authz/permission/DomainPermission.java