When using this to set policies it works.

<policy name="Set category - Nodes" class="org.opennms.netmgt.provision.persist.policies.NodeCategorySettingPolicy">
<parameter key="category" value="Nodes"/>
<parameter key="matchBehavior" value="ALL_PARAMETERS"/>
</policy>
<policy name="Set category - Network" class="org.opennms.netmgt.provision.persist.policies.NodeCategorySettingPolicy">
<parameter key="category" value="Network"/>
<parameter key="matchBehavior" value="ALL_PARAMETERS"/>
</policy>

When using this it does not work:

<policy name="Set category - Nodes" class="org.opennms.netmgt.provision.persist.policies.NodeCategorySettingPolicy">
<parameter key="category" value="Nodes"/>
<parameter key="matchBehavior" value="ANY_PARAMETERS"/>
</policy>
<policy name="Set category - Network" class="org.opennms.netmgt.provision.persist.policies.NodeCategorySettingPolicy">
<parameter key="category" value="Network"/>
<parameter key="matchBehavior" value="ANY_PARAMETERS"/>
</policy>

It seems to be backwards that labels get applied when "ALL_PARAMETERS" is matched and no actual paramters present, but ANY_PARAMETERS won't match with no paramters present.