Hey Chris! Is it possible that this user is set up as an observer? I am an observer on one of my boards, and my menu looks the exact same. Since observers are only able to comment/vote, they wouldn't be able to create cards (either on board or email-to-board)
It shouldn't, but then again sometimes browsers do their own thing. If you have issues like this where everyone's setting is the same but somoene is not able to do something that everyone else is, , sometimes a good ole' clearing of cache/cookies resolves the issue.
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