The short answer is no, you can't get a list of all tasks across users. If you look at the ToDo API docs here:
https://learn.microsoft.com/en-us/graph/api/resources/todo-overview?view=graph-rest-1.0
You will see the comment "Currently, the API supports only permissions delegated by the signed-in user" which means that you cannot get any ToDo task info using application level permissions.
You can use an application to get ToDo task data if you get use delegated permissions, but you would have to get an access token / refresh token for each user, which would require that each individual user consent to the app access. Then you could access each user's todo tasks on a per user basis using that user's access token.
It is a bummer and it's a bit of a clunky process but I have successfully done it this way.