After some research, I find out that Claim1 and Claim2 cannot be equal in Preconditions, even though they have the same values.
Issue has been fixed by using a ClaimsTransformation for “CompareClaims” in the TechnicalProfile as below:
Claims Transformation:
<ClaimsTransformation Id="CheckClaimMatches" TransformationMethod="CompareClaims">
<InputClaims>
<InputClaim ClaimTypeReferenceId="claim1" TransformationClaimType="inputClaim1"/>
<InputClaim ClaimTypeReferenceId="claim2" TransformationClaimType="inputClaim2"/>
</InputClaims>
<InputParameters>
<InputParameter Id="operator" DataType="string" Value="EQUAL"/>
<InputParameter Id="ignoreCase" DataType="string" Value="true"/>
</InputParameters>
<OutputClaims>
<OutputClaim ClaimTypeReferenceId="CheckClaimEqual" TransformationClaimType="outputClaim"/>
</OutputClaims>
</ClaimsTransformation>
In the Technical Profile:
<OutputClaimsTransformations>
<OutputClaimsTransformation ReferenceId="CheckClaimMatches" />
</OutputClaimsTransformations>
In the Orchestration Step:
<Precondition Type="ClaimEquals" ExecuteActionsIf="true">
<Value>CheckClaimEqual</Value>
<Value>True</Value>
<Action>SkipThisOrchestrationStep</Action>
</Precondition>