Applying an action to all the layers in a document.

script runs selected action in actions palette for all selected layers

#target photoshop
var s2t = stringIDToTypeID;

(r = new ActionReference()).putProperty(s2t('property'), p = s2t('targetLayersIDs'));
r.putEnumerated(s2t('document'), s2t('ordinal'), s2t('targetEnum'));
var lrs = executeActionGet(r).getList(p);

(r = new ActionReference()).putEnumerated(s2t('action'), s2t('ordinal'), s2t('targetEnum'));
try {
    try {
        var atn = executeActionGet(r).getString(s2t('name')),
            set = executeActionGet(r).getString(s2t('parentName'));
    }
    catch (e) { throw 'Before start select any action from actions palette!' }

    for (var i = 0; i < lrs.count; i++) {
        (r = new ActionReference()).putIdentifier(s2t('layer'), lrs.getReference(i).getIdentifier(s2t('layerID')));
        (d = new ActionDescriptor()).putReference(s2t('target'), r);
        try { executeAction(s2t('select'), d, DialogModes.NO); } catch (e) { throw e + '\nCannot select layer!' }
        (r = new ActionReference()).putName(s2t('action'), atn);
        r.putName(s2t('actionSet'), set);
        (d = new ActionDescriptor()).putReference(s2t('target'), r);
        try { executeAction(s2t('play'), d) } catch (e) { throw e + '\nCannot play action "' + atn + '" from set "' + set + '"' }
    }
} catch (e) { alert(e) }

"same Action to all the layers in the Layers Palette? "

Well, difficult thing using action unless your documents always have same amount of layers. You can record action with conditional steps to start from top most layer then to check and stop playing (play None action) when it hits Background layer for example. If every conditional step have that condition then you can insert as many if steps as you want and everything will work fine if you have Background layer what can be also checked and fixed. If you want to process and Background layer then check in the very last if step for Background layer and play action to process Background layer.

How would your action know what to do for each layer it processes. It would be easy for a script to  do your Action with each layer in the document being the document active layer.  What would your action do for smart object layers, for adjustment layers, for gradient fills for pattern fills etc.  Your action can test just a few layer conditions and would need to play other actions to handle layer conditions. The list of condition an Action can test is very limited. It can not even test if the active layer is a smart object layer?????

You need to learn scripting to Process all layer in a document.

if (documents.length) {
	// declare Global variables
	var layerList = new Array;
	var setList = new Array;
	var allList = new Array;
	var allLayers = ""; 

	main();
	for( var i = 0; i < layerList.length; i++) {processLayer(layerList[i]);}

	//alert("Layerset: " + setList.length + " Layers: "  + layerList.length + " Total: " + allList.length + "\n\n" +allLayers);
	logInfo("Layerset: " + setList.length + " Layers: "  + layerList.length + " Total: " + allList.length + "\n\n" +allLayers);
}
//////////////////////////////////////////////////////////////////////////////////////////////
function main() {
	processLayers(activeDocument) 
}
function processLayers(obj) {  
    for( var i = obj.layers.length-1; 0 <= i; i--) {
		if (obj.layers[i].kind!=undefined) {
			layerList.push(obj.layers[i]);
			allList.push(obj.layers[i]);			
		}
		else {
			setList.push(obj.layers[i]);
			allList.push(obj.layers[i]);			
			processLayers(obj.layers[i]);
		}
	} 
} 
function processLayer(layer) { 
	//alert('Layer Name = "' + layer.name + '" Layer Kind ' + layer.kind );
	allLayers = allLayers + layer.name + " , ID " + layer.id + ", " + layer.kind + "\n";
	//allLayers = allLayers + obj_to_str(layer) + "\n";
}
function obj_to_str(obj){
    var str = ""; 
    for (var p in obj) {	
        if(obj.hasOwnProperty(p)) {
            try{str+=p+"::"+obj[p]+"\n";}
            catch(e){};
        }
    }		
    return str;
}   
function logInfo(Txt){
    try {	
       var file = new File(Folder.desktop + "/LayersBotToTop.txt"); 
       file.open("w", "TEXT", "????"); 
       //alert(file.encoding);
       file.encoding = "UTF8";
       file.seek(0,2);   
       $.os.search(/windows/i)  != -1 ? file.lineFeed = 'windows'  : file.lineFeed = 'macintosh';
       file.writeln(Txt); 
       if (file.error) alert(file.error);
       file.close();
       file.execute(); 
    }
    catch(e) { alert(e + ': on line ' + e.line, 'Script Error', true); }
};

You could modify this script. Modify the processLayer make normal Layer the Active layer and use the doaction method  to run your action ignore all other layer kinds.