The current spec (draft 40) says the combination rules apply to a single metadata parameter policy. However, they also apply when statements are merged.
https://openid.net/specs/openid-federation-1_0.html#section-6.1.3
MUST declare what other operators it may be combined within a metadata parameter policy. Combinations that are not allowed MUST result in a policy error.
"Metadata parameter policy" is defined in https://openid.net/specs/openid-federation-1_0.html#section-6.1.2.
Also note, for federation architects and in view of PR #112, that not all allowed combination make sense to be used in a single metadata parameter policy, but to enable the merge of policy statements from different entities.