IPS not working

When I change policies, the outcome doesn't match what I would expect, but would explain why so many rules are commented out when I look at the rules file.

When I submit Expert in the gui, the last one in the log snapshot, it seems apply a disabled policy even though it lists 18 thousand odd rules as enabled.
I wouldn't expect Security to disable all the rules.

-=Begin Changes Logged for Thu Jan 7 00:57:47 2016 GMT=-

Set Policy: connectivity

Rule Totals
New:-------0
Deleted:---0
Enabled:---0
Dropped:---0
Disabled:--23078
Total:-----23078

No IP Blacklist Changes

-=End Changes Logged for Thu Jan 7 00:57:47 2016 GMT=-

-=Begin Changes Logged for Thu Jan 7 00:58:41 2016 GMT=-

Set Policy: balanced

Rule Totals
New:-------0
Deleted:---0
Enabled:---0
Dropped:---0
Disabled:--23078
Total:-----23078

No IP Blacklist Changes

-=End Changes Logged for Thu Jan 7 00:58:41 2016 GMT=-

-=Begin Changes Logged for Thu Jan 7 01:00:07 2016 GMT=-

Set Policy: security

Rule Totals
New:-------0
Deleted:---0
Enabled:---0
Dropped:---0
Disabled:--23078
Total:-----23078

No IP Blacklist Changes

-=End Changes Logged for Thu Jan 7 01:00:07 2016 GMT=-

-=Begin Changes Logged for Thu Jan 7 01:00:35 2016 GMT=-

Set Policy: Disabled

Rule Totals
New:-------0
Deleted:---0
Enabled:---18920
Dropped:---0
Disabled:--4158
Total:-----23078

No IP Blacklist Changes

-=End Changes Logged for Thu Jan 7 01:00:35 2016 GMT=-