According to http://tomcat.apache.org/tomcat-7.0-doc/realm-howto.html#JAASRealm
You should set up a login.config file for Java and tell Tomcat where to find it by specifying its location to the JVM, for instance by setting the environment variable: JAVA_OPTS=$JAVA_OPTS -Djava.security.auth.login.config=$CATALINA_BASE/conf/jaas.config
Added
For Windows open startup.bat Add the following line: set JAVA_OPTS=%JAVA_OPTS% -Djava.security.auth.login.config=%CATALINA_HOME%/conf/jaas.config after okHome
e.g.
set JAVA_OPTS=%JAVA_OPTS% -Djava.security.auth.login.config=%CATALINA_HOME%/conf/jaas.config
set "EXECUTABLE=%CATALINA_HOME%\bin\catalina.bat"