Throttling policy not working in distributed setup APIM 4 WSO2

Question

We installed the APMs according to the document. https://apim.docs.wso2.com/en/latest/install-and-setup/setup/distributed-deployment/deploying-wso2-api-m-in-a-distributed-setup-with-km-separated/ But when we define a throttling policy in the admin panel, the policy is not published and Not applied for request.

APIM version is 4.0.0

[GW Configuration]

[apim.throttling]
username= "$ref{super_admin.username}"
password= "$ref{super_admin.password}"
service_url = "https://amtm.dev:9443/services/"
throttle_decision_endpoints = ["tcp://amtml01.dev:5672" , "tcp://amtml02.dev:5672"]
enable_query_param_based_throttling = true
enable_jwt_claim_based_throttling = true
enable_header_based_throttling= true
enable_blacklist_condition = true
enable_policy_deploy=true
enable_data_publishing=true

[[apim.throttling.url_group]]
traffic_manager_urls=["tcp://amtml01.dev:9611"]
traffic_manager_auth_urls=["ssl://amtml01.dev:9711"]
traffic_manager_username="admin"
traffic_manager_password="admin"
[[apim.throttling.url_group]]
traffic_manager_urls=["tcp://amtml02.dev:9611"]
traffic_manager_auth_urls=["ssl://amtml02.dev:9711"]
traffic_manager_username="admin"
traffic_manager_password="admin"

[[event_listener]]
id = "token_revocation"
type = "org.wso2.carbon.identity.core.handler.AbstractIdentityHandler"
name = "org.wso2.is.notification.ApimOauthEventInterceptor"
order = 1

[event_listener.properties]
notification_endpoint = "https://amcp.dev:${mgt.transport.https.port}/internal/data/v1/notify"
username = "${admin.username}"
password = "${admin.password}"
'header.X-WSO2-KEY-MANAGER' = "default"

[apim.event_hub]
enabled = true
service_url = "https://amcp.dev:9443/services/"
username="admin"
password="admin"
event_listening_endpoints=["tcp://amcpl01.dev:5672" , "tcp://amcpl02.dev:5672"]
#environmentLabels = ["Default"]
#retryInterval = 5
#skipSSLVerification=true

[[apim.event_hub.publish.url_group]]
urls=["tcp://amcpl01.dev:9611"]
auth_urls=["ssl://amcpl01.dev:9711"]
username="admin"
password="admin"

[[apim.event_hub.publish.url_group]]
urls=["tcp://amcpl02.dev:9611"]
auth_urls=["ssl://amcpl02.dev:9711"]
username="admin"
password="admin"

[CP Configuration]

[apim.throttling]
service_url = "https://amtm.dev:9443/services/"
event_duplicate_url = ["tcp://amcpl02.dev:5672"]
username = "$ref{super_admin.username}"
password = "$ref{super_admin.password}"
enable_data_publishing = true
enable_query_param_based_throttling = true
enable_jwt_claim_based_throttling = true
enable_header_based_throttling= true
enable_blacklist_condition = true

[[apim.throttling.url_group]]
traffic_manager_urls = ["tcp://amtm01.dev:9611"]
traffic_manager_auth_urls = ["ssl://amtm01.dev:9711"]

[[apim.throttling.url_group]]
traffic_manager_urls = ["tcp://amtm02.dev:9611"]
traffic_manager_auth_urls = ["ssl://amtm02.dev:9711"]

[[event_listener]]
id = "token_revocation"
type = "org.wso2.carbon.identity.core.handler.AbstractIdentityHandler"
name = "org.wso2.is.notification.ApimOauthEventInterceptor"
order = 1

[event_listener.properties]
notification_endpoint = "https://amcp.dev:9443/internal/data/v1/notify"
username = "${admin.username}"
password = "${admin.password}"
'header.X-WSO2-KEY-MANAGER' = "default"

[apim.event_hub]
enable = true
username = "$ref{super_admin.username}"
password = "$ref{super_admin.password}"
service_url = "https://amcpl01.dev:9443/services/"
event_listening_endpoints = ["tcp://amcpl01.dev:5672"]

[[apim.event_hub.publish.url_group]]
urls = ["tcp://amcpl01.dev:9611"]
auth_urls = ["ssl://amcpl01.dev:9711"]

[[apim.event_hub.publish.url_group]]
urls = ["tcp://amcpl02.dev:9611"]
auth_urls = ["ssl://amcpl02.dev:9711"]

[TM Configuration]

[apim.throttling]
username= "$ref{super_admin.username}"
password= "$ref{super_admin.password}"
service_url = "https://amtm.dev:9443/services/"
throttle_decision_endpoints = ["tcp://amtml01.dev:5672"]
enable_query_param_based_throttling = true
event_duplicate_url = ["tcp://amtml02.dev:5672"]
enable_jwt_claim_based_throttling = true
enable_header_based_throttling= true
enable_blacklist_condition = true

[[apim.throttling.url_group]]
traffic_manager_urls=["tcp://amtml01.dev:9611"]
traffic_manager_auth_urls=["ssl://amtml01.dev:9711"]
traffic_manager_username="admin"
traffic_manager_password="admin"

[[apim.throttling.url_group]]
traffic_manager_urls=["tcp://amtml02.dev:9611"]
traffic_manager_auth_urls=["ssl://amtml02.dev:9711"]
traffic_manager_username="admin"
traffic_manager_password="admin"

[apim.event_hub]
enable = true
username = "$ref{super_admin.username}"
password = "$ref{super_admin.password}"
service_url = "https://amcp.dev:9443/services/"
event_listening_endpoints = ["tcp://amcp01.dev:5672","tcp://amcp02.dev:5672"]

[[apim.event_hub.publish.url_group]]
urls = ["tcp://amcp01.dev:9611"]
auth_urls = ["ssl://amcp01.dev:9711"]

[[apim.event_hub.publish.url_group]]
urls = ["tcp://amcp02.dev:9611"]
auth_urls = ["ssl://amcp02.dev:9711"]

What could be the problem?