Should {?s ?p ?o} match against both named graph triples and default graph triples?

[Bob DuCharme]

Imagine running the short INSERT query at 
https://www.learningsparql.com/2ndeditionexamples/ex338.ru on an empty 
dataset. It inserts six triples: two in the default graph and two each 
into two named graphs, for a total of six triples.

Next, we run the query SELECT * WHERE {?s ?p ?o}. In some triplestores 
this returns a row for each of the six triples in the dataset, but Jena 
(tested with Fuseki 4.6.1) only returns rows for the two triples in the 
default graph.

I can't find anything in the Recommendation about what should happen 
here. It looks like 
https://www.w3.org/TR/sparql11-query/#namedAndDefaultGraph would have 
been the place to clarify this. Is the issue of proper behavior in this 
case just up to the implementer, like what DESCRIBE is supposed to 
return? Or is it something that the sparql12 group should clarify and 
document? (Or maybe they have and I missed it...)

Thanks,

Bob