how to use pam_cap.so??

[basten999]

i want to let the non-privilege user have some privileges. and i think libcap-2.14 can help me to do that !
for a test, i want user basten has CAP_NET_RAW , so i have done some jobs :
1. download libcap-2.14.tar.gz
2. configure, make and make install
3. edit /etc/security/capability.conf, add a line '13 basten' , the file is
# /etc/security/capability.conf
#
# this is a sample capability file (to be used in conjunction with
# the pam_cap.so module)
#
# In order to use this module, it must have been linked with libcap
# and thus you'll know about Linux's capability support.
# [If you don't know about libcap, the sources for it are here:
#
# http://linux.kernel.org/pub/linux/li...y/linux-privs/
#
# .]
#
# Here are some sample lines (remove the preceding '#' if you want to
# use them

## user 'morgan' gets the CAP_SETFCAP inheritable capability
#cap_setfcap morgan

## user 'luser' inherits the CAP_DAC_OVERRIDE capability
#cap_dac_override luser
13 basten
## 'everyone else' gets no inheritable capabilities
none *

## if there is no '*' entry, all users not explicitly mentioned will
## get all available capabilities. This is a permissive default, and
## probably not what you want...
4. edit /etc/pam.d/login, add a line 'auth required pam_cap.so', the file is
#%PAM-1.0
auth [user_unknown=ignore success=ok ignore=ignore default=bad] pam_securetty.so
auth include system-auth
auth required pam_cap.so
account required pam_nologin.so
account include system-auth
password include system-auth
# pam_selinux.so close should be the first session rule
session required pam_selinux.so close
session include system-auth
session required pam_loginuid.so
session optional pam_console.so
# pam_selinux.so open should only be followed by sessions to be executed in the user context
session required pam_selinux.so open
session optional pam_keyinit.so force revoke
5. reboot and login as user basten
6. /usr/sbin/getpcaps $$
[basten@localhost ~]$ /usr/sbin/getpcaps $$
Capabilities for `27296': =
[basten@localhost ~]$

the capability CAP_NET_RAW is not allowed for user basten

who can help me to do that ?? thank you very much!!

PS: my OS is RHEL5.1 my kernel is linux 2.6.26.6-49