The WS-Policy specification splits into WS-Policy and WS-PolicyAttachments. While the later deals with the question how policies are attached to WSDL elements (Policy Subjects) the the first spec describes the low level functionality required to read/write policies and perform operations on policy expressions (merge, intersect, normalize).
I'd suggest we leave the WS-Policy impl. to ws-commons/policy (http://ws.apache.org/commons/policy/index.html) and concentrate on the attachment part.
