I think you could mimic the same logic of the F5 iRule (if exists / else) by using ALT vs joining them together (+).
-rule "CLIENT.UDP.RADIUS.ATTR_TYPE(31) ALT CLIENT.UDP.RADIUS.ATTR_TYPE(4)"
I actually figured out my issue with the policy set screens being missing. It was because a step was missing from your steps.
Administration > Network Resources > Network Device List > RADIUS Server Sequences.
You didn't have documented the nee...
Edit: I found your post about bug CSCvg03448. This still seems to be a issue in ISE 2.4 patch 2....
Have you done any updates to your steps for eduroam for ISE 2.4? With ISE 2.4 they changed how policy sets are done and moved the protocols/proxy ...