as far as I have understood the AR driver is able to create users (which where imported from applications) in the IDV if they are not already associated?!

Currently my AR driver is creating resources fine. It also associates existing users with the newly created resources but it does not create any new users. I have looked in the RL and driver log file (with loglevel 3) but they don't mention my new users so I think I am missing a prerequisites. What has to be done to make this work? The driver "allow-add" option is set to "Adds and Migrate Allowed".