diff --git a/refpolicy/Rules.modular b/refpolicy/Rules.modular
index 02e6d3603..d52532f31 100644
--- a/refpolicy/Rules.modular
+++ b/refpolicy/Rules.modular
@@ -37,9 +37,9 @@ vpath %.fc $(ALL_LAYERS)
 #
 # default action: create all module packages
 #
-default: base
+default: policy
 
-all: base modules
+all policy: base modules
 
 base: $(BASE_PKG)
 
@@ -217,4 +217,4 @@ clean:
 	rm -f $(BUILDDIR)/*.pp
 	rm -fR $(TMPDIR)
 
-.PHONY: default all base modules install load clean
+.PHONY: default all policy base modules install load clean