...
This situation can arise when the only policy set (or policy) for some content contains a target element or any other XACML construct that restricts it's applicability to authz requests. If the PDP can find no policy that targets the request, it returns a NOT_APPLICABLE result to the XACML AuthZ Delegate. The delegate will then return false to modeshape, indicating that the action is not permitted.
Issues
See JCR 3.8.2 Referential Integrity. It would be nice if referential integrity could be enforced for the default policy, in addition to the separately linked policies. However, my understanding is that the root node cannot have properties like this. Any ideas?
...