Have you created a policy and do not think it has been assigned to a user or group?
Are policies not in effect for Community Server users that you have configured in the Sametime System Console?
Then you should check your sametime.ini. Search for POLICY_DB_BB_IMPL=
If the result is
POLICY_DB_BB_IMPL=com.ibm.sametime.policy.databasebb.notes.DbNotesBlackBox
replace it with
POLICY_DB_BB_IMPL=com.ibm.sametime.policy.databasebb.xml.DbXmlBlackBox
The first line reads the policy from stpolicy.nsf and the second line ready the policy from policies.user.xml that acts as a cache between the Community Server and the Sametime System Console server.
Happy Yellow Day 2010 everybody !!