I was seeing the same error:
'policy-options' Policy error: customer-test community contains no non-wildcard members in set or add action (in term 1) error: configuration check-out failed
Then i tried using it as below:
set policy-options community customer-test members target:4000003L:5555;
instead of:
set policy-options community customer-test members 4000003L:5555;
and it works fine, maybe you can test this way.
Thanks!