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Apache Neethi is the WS-Policy framework for Axis2. Building on top of it would have the advantage that we don't have to re-implement any of the policy normalization and merge logic. The downside however is its dependency on the Axis2 object model. But Neethi is a very small project (< 20 files), so picking up some the ideas and implementing similar functionality in CXF seems an acceptable solution.

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