The plugin provides the tag additionalConfigFilesDir:
<additionalConfigFilesDir>${tomcatConfigFolder}</additionalConfigFilesDir>
There you can put your policies file as well other config files.
In the maven-tomcat-plugin source code I found that the configuration files are being copied as expected to your target/tomcat/conf directory but the plugin can't use it because policies are specified as a VM argument and your VM had started when this takes place.
So the inmediate solution is to specify in your MAVEN_OPTS variable:
export MAVEN_OPTS = "$MAVEN_OPTS -java.security.policy=pathToTheTomcatConfig/catalina.policy"
I hope this helps.