One more editorial suggestion

Section 4.3.6 basically says "to normalize, apply the rules above
recursively." By the time you get to 4.3.6, you've already seen most of
the machinery for normalization, but without that bit of context.  It
would be better to put the content in 4.3.6 /before/ the normalization
material in 4.3.2 and 4.3.3.

Put another way: Sections 4.3.2 and 4.3.3 (especially), say quite a bit
about normalizing expressions, but they're titled "Policy assertion
nesting" and "Policy operators".  They look like independent sections on
syntax (and they do define syntax) but they also act like subsidiary
sections on normalization.

Perhaps a better organization would be:

    * Syntax
          o Policy operators (from 4.3.3)
          o Optional policies (from 4.3.1), probably with the rewrite rule
          o Policy nesting (from 4.3.2)
          o Policy references (from 4.3.4)
          o Policy inclusion (from 4.3.5)
    * Normalization
          o Normal form (from 4.1)
          o Overall normalization algorithm (from 4.3.6)
          o Policy operator rules (from 4.3.3)
          o Optional policy rewrite rule if, it's not in the syntax
            section above (from 4.3.1)
          o Policy nesting rules (from 4.3.2)