\define newtitlemacro() $(policy-title)$ $(bullet-title)$
\define newtitletags() [[$(policy-title)$]] [[$(bullet-title)$]]
\define makebullet(bullet-title)
<$vars bullet-title=$bullet-title$ policy-title={{!!title}}>
<$button class="tc-btn-invisible tc-tiddlylink">
<$action-setfield $tiddler=<<newtitlemacro>> tiddler-type="policy-bullet" from-policy=<<policy-title>> tags=<<newtitletags>>/>
<$action-sendmessage $message="tm-edit-tiddler" $param=<<newtitlemacro>>/>
<<newtitlemacro>> </$button>
</$vars>
\endTitles are in some ways keys to the information contained in a tiddler. Any design that demands tiddler titles to change is asking the one thing that that perhaps should remain the same is what I may call fragile.
I think we may be able to find an answer to you question however I respectfully suggest to try to identify an alternate design approach.
The message you are recieving is about changing the title of the current tiddler and where that title is used as a tag. It has no direct conection to the titles you created that included it.
Perhaps you can ask what you would like to have in your tiddlywiki rather than ask the detailed how to you ask here.
Regards
Tony