VPN Policy applies to both clients

There's a lot of posts out there so apologies if this has been asked already.

I find that when I set a policy for an internal IP to use a VPN client, either 1 or 2, it seems to combine the policies and apply them to the first client. So even though Ip a.b.c.d is set to use the VPN CLient 2 under its policy, it actually uses client 1.

Is there really just one list. The log file doesn't seem to identify a cleint when it recognizes a policy entry.