FYI the docs may be wrong on this one, and the solution may work the way that @jseals mentioned. We authenticate VPN users against radius, and only if the radius servers are down should the local user database be used as a fallback. In the Portal -> Authentication config, if the Radius auth is ordered first and the servers are responding, then the local user database is never checked. Similarly, if the Local Database is ordered first, then auth will check the local database, and Radius is never checked (so putting anything after Local Database seems useless). So we placed Radius first and Local Database second. Not exactly the scenario that was mentioned above in the post, just a data point.
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