rebaserules not being applied

I see that kapp has a default rebase rule for annotations as follows
# Be specific about annotations to be applied
- path: [metadata, annotations]
type: remove
resourceMatchers:
- allMatcher: {}
- path: [metadata, annotations]
type: copy
sources: [new]
resourceMatchers:
- allMatcher: {}

i want to overwrite the behavior where i want to accept annotations added by other ways to resources managed by kapp-controller and so added following config in a yaml file along with other resource definitions packed as a imgpkg.

apiVersion: kapp.k14s.io/v1alpha1
kind: Config
rebaseRules:
- path: [metadata, annotations]
type: copy
sources: [existing, new]
resourceMatchers:
- allMatcher: {}

But kapp-controller still tries to remove the extra annotations added which will be rejected by our custom opa controller.
<> annotations/labels <> cannot be deleted

Can you please let me now if i am doing something wrong and also if there is any way i can overwrite the default rebaserules globally and not in individual apps.