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## Why Cleanup for #31179 exposed a core fallback bug that the TUI had been handling locally. When a custom `.rules` file fails to parse, nonfatal clients warn and continue, but `load_exec_policy_with_warning` replaced the entire policy with `Policy::empty()` before managed requirements were merged. App-server and desktop clients could therefore silently lose required prompt and forbidden rules. This fix is intentionally separate from #31179 so the TUI cleanup does not depend on it. ## What changed - Preserve the managed requirements exec policy when custom file rules fail to parse, while returning the existing warning and discarding the file-based policy. - Use the same nonfatal fallback when loading network proxy policy. - Keep parse errors fatal for strict clients such as `codex exec`.