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.