agora está funcionando
<role rolename="manager"/>
<role rolename="tomcat"/>
<role rolename="role1"/>
<user username="root" password="admin" roles="manager"/>
<user username="tomcat" password="tomcat" roles="tomcat"/>
<user username="both" password="tomcat" roles="tomcat,role1"/>
<user username="role1" password="tomcat" roles="role1"/>