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If you are using the "My Policies" feature, and If the user created the policy in "My Policies" then only that user (policy creator) can apply the policy to a document. These are considered "personal" policies.
You need to create a Policy Set, and then policies with in the policy set. Any user that is set as a "Document Publisher" within the policy set will have access to the policies stored in the set and can apply any of the policies to a document.