A system is disclosed for creating and implementing an access control policy framework in a weakly coherent distributed collection. A collection manager may sign certificates forming equivalence classes of replicas that share a specific authority. The collection manager and/or certain privileged replicas may issue certificates that delegate authority for control of item policy and replica policy. Further certificates may be signed that create one or more items, set policy for these one or more items, and define a set of operations authorized on the one or more items. The certificates issued according to the present system for creating and implementing a control policy framework cannot be modified or simply overridden. Once a policy certificate is issued, it may only be revoked by the collection manager or by a replica having revocation authority.