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The Framework document says: Assertions within an alternative are not ordered, and thus aspects such as the order in which behaviors (indicated by assertions) are applied to a subject <http://www.w3.org/TR/2007/REC-ws-policy-20070904/#policy_subject> are beyond the scope of this specification. However, authors can write assertions that control the order in which behaviors are applied.. This is a curious head-in-the-sand statement as it admits that the order in which assertions within an alternative are applied can be important and then refuses to address the problem.
Resolved at the Oct 24 meeting with the proposal in: http://lists.w3.org/Archives/Public/public-ws-policy/2007Oct/0068.html