ACLs interpreted differently depending on OS?

[Dax Kelson <dax@gurulabs.com>]

These are the ACLs that work (authentication, password changes via passwd)  
on the RedHatLinux7.2/OpenLDAP2.0.22 but not on
NetBSD1.5.2/OpenLDAP2.0.22, same clients, same data imported:

access to attr=userPassword
        by self write
        by anonymous auth

access to dn=() by * read

access to *
        by users read
        by anonymous none

On the NetBSD box, IF I ADD A NEW ACL at the top of:

access to * by * write

Then AUTHENTICATION works, this leads me to believe that the ACLs are
being processed differently somehow.

Any and all help greatly appreciated,
Dax Kelson