@romo Your site-to-site VPN doesn't work either, correct? Are you sure none of the routers is behind a Carrier Grade NAT (CG-NAT)? Are they all public IPs you have on both ends? L2TP doesn't work if its server is behind a NAT.
When you use a policy based VPN you need to start passing some traffic through the tunnel to bring it up. Have you tried pinging a device on the other router's network tunnelled through the VPN?
What's the output of show log | match 'xl2tpd|pppd'?