how to configure a flat file user authentication?

I could not use a flat file (WAS Federated realm) for RAM user authentication.
Whenever I search users on RAM Web Client, the result is always empty (admin only).

I configure WAS referring to the following link.
TN0035: Configuring WAS with Federated realm
http://jazz.net/library/techtip/97

Is it incorrect(out of date)?
What information would I need to check?

The following is my environment:

Microsoft Windows Server 2003 Standard Edition Service Pack 2
WebSphere Application Server 7.0.0.7
Rational Asset Manager Enterprise Edition 7.2.0.1
(trying to use Floating licensing model)
Rational License Key Administrator 7.0.1.0

thanks in advance.

Yusuke.