Vocabulary mismatch hides the document
The corpus answers the question, but in different words — the query says "PTO carryover" while the policy says "annual leave accrual" — and the right document never surfaces.
User: How much PTO can I carry over into next year? [… the answer lives in "Annual Leave Accrual Policy", which shares no vocabulary with the query and ranks below the cutoff …] Assistant: I couldn't find a carryover policy — your organization may not allow PTO carryover.