OK, I understand.
The import file you are creating can only be used to create users and set the activation password. You have to do that by doing "Create a user > Import new users"
If the users are already existing, you can use "Manage users > Manage multiple users from an import list", but you need to create the file in a different format. See: KB21981-How to format the user import CSV file when managing users from the BlackBerry Administration Service