It means axis player can put off total war as his wish until all other per-war and limit war cards are played？Yes, the Axis deck (in a TK-only game) is the 'game clock' so to speak. It has no repeating cards (unlike the West and Soviet, who have repeating diplomacy and later production cards), so it will eventually be forced to start limited war and (later) also forced to start Total War.
That being said, it's not always wise to drag out pre-war/limited war as long as possible. Both the West and the Soviets have a bunch of cards in pre-war/limited war which are good but come with a lot of pre-requisites. if you drag out pre or limited war you are giving them time to play through all their junk to get to the good cards.
In the historical playbook (as I remember), the Soviets were not done going through their limited war cards when the axis attacked in '41. They had to try to fit a few in during the early parts of the war, and then finally unlocked a decent card for summer of '42, and even better cards later on.
If the germans delay until the summer of 42 to attack, the Soviets will have more forces available to defend with, and be closer to playing their best cards when TW breaks out.