The document should clearly state that it is intended for public registries with large numbers of registrations (i.e. mostly second-level and for some ccTLDs third-level zones) rather than tightly controlled, privately managed, and in most cases much smaller zones (mostly third-level and some higher levels).
In the later case, the owner does not have to state a policy, and can just register whatever they think is feasible.
--Paul Hoffman, Director --Internet Mail Consortium