In my example, we instituted a Policy at the GCC to restrict team members in certain cases from filling more than x-number of roles. The Policy was enacted based on a tension created around resource allocation and certain team members ability to fully energize their primary (core roles).
The important thing to consider, from my perspective, is that in our case, the Governance was tension-driven.
If the old managers are restricting circle assignment - which would require Governance - based solely on their desire to control people (i.e not based in a Tension), then the Policy which would be required to restrict such assignments would not stand testing outlined in Para. 3.2.3.
Hope this helps.