This document discusses using policy-driven development to empower stakeholders of cyberinfrastructures (CIs). It proposes expressing stakeholder requirements as executable policies that can constrain and augment data and control flows within the CI. Key challenges include enabling stakeholders to author complex policies and refining and enacting those policies within the CI. The approach is demonstrated in a case study of the PALMS physical activity monitoring system where a policy restricts which users can add devices to a study.