diff --git a/Rules.modular b/Rules.modular
index bd650581d3..c705541ec9 100644
--- a/Rules.modular
+++ b/Rules.modular
@@ -37,9 +37,11 @@ vpath %.fc $(all_layers)
 #
 # default action: create all module packages
 #
-default: policy
+default: all
 
-all policy: base modules
+all: policy $(builtappfiles)
+
+policy: base modules
 
 base: $(base_pkg)
 
diff --git a/Rules.monolithic b/Rules.monolithic
index a0ea29aaec..2cbee5a177 100644
--- a/Rules.monolithic
+++ b/Rules.monolithic
@@ -58,7 +58,9 @@ vpath %.fc $(all_layers)
 #
 # default action: build policy locally
 #
-default: policy
+default: all
+
+all: policy $(builtappfiles)
 
 policy: $(polver)