I exhort therefore, first of all, that petitions, prayers, intercessions, and givings of thanks, be made for all men:
All that are in high place ...  This includes all who are in authority regardless of rank, taking in the administrative assistants in government as well as heads of state.  The intense missionary thrust of this whole passage is inherent in the repetition of "all" throughout the passage, as well as in the missionary reference in  1 Timothy 2:7.