I couldn't figure out why TEM was able to import files from previous commands but failed on this command. Obviously, the FSC was started and working correctly since previous commands imported files successfully. Then I thought it might be permissions on the new TC_DATA directory since that's where the XML lives.
The syslog shows the error: ERROR - 2018/04/19-12:26:12.559 UTC - NoId - FileTickets::getFmsBootStrapUrls -- The preference Fms_BootStrap_Urls could not be found or has no values.
You'll need to change the Fms_BootStrap_urls value to include the http addresses of your FSC(s). How can you do that without logging into a 2tier? Use the command line utility "preferences_manager". The process will be to export the current value, make any changes, then import the new value.
Create a text file containing: Fms_BootStrap_urls
In a (new) tc command window: preferences_manager -u=infodba -p=infodba -g=dba -mode=export -scope=SITE -file=prefList.txt -out_file=C:\Temp\prefs.xml
Open C:\Temp\prefs.xml and add any values for the FSC(s) [Tip: Copy the address from FMS Master] and save the file.