SLAPD_CONF="$SLAPD_PATH/etc/openldap/slapd.conf" SLAPD_CONF_DIR=""
So this says to use slapd.conf. You likely want to set SLAPD_CONF="" and fix SLAPD_CONF_DIR to point to the location of your cn=config DB.
--Quanah -- Quanah Gibson-Mount Lead Engineer Zimbra, Inc -------------------- Zimbra :: the leader in open source messaging and collaboration