The mutiple entries in "Primary LDAP Server" for Policy Configuration must be a single line.

The online help for Policy Configuration indicates this

Configuration directory server host:port that OpenAM searches for policy information.
Format: local server name | host name:port
Multiple entries must be prefixed by local server name.

According to the source code, the only way to specific multiple entries is that you specify all the entries in a SINGLE line for example, the entries separated by space. The code will ignore entries that is not prefixed by "local server name" which is essentially your local OpenAM server.