When a rate limit policy specifies 0 as the limit for a certain user class, the response status should be 401, not 429.
This can be implemented in a way similar to how we add the retry-after header, be examininhg the x-ratelimit-xxx response headers to determin the rate limit, and updating the status of that limit is 0.
Open question: should it be 401 or 403? 401 makes sense if the limit is non-zero for authenticated clients. 403 makes sense in cases where e.g. only internal traffic is allowed. Perhaps that can be an option in the rate limit policy.