May be a longshot, but have you launched NWADMIN32 and set up the user/client rules for Bordermanager ?

With NWADMIN (or iManager me thinks) you can control the client/user proxy permissions and with FILTCFG from the netware comand line you can configure the global settings (host/network etc). I have seen cases when 'allow all' in FILTCFG not allows any clients to access internet cause it's blocked in NDS.

Possible solution: install bordermanager snapins and launch NWADMIN, configure Bordermanager access rules and behavior on the Bordermanager server object, this is not best practise but you do see the result quickly and can move/recreate the rules on another ou where it's better applied depending on where you have your users etc when you have confirmed that it's working as intended .

Signed ~Micael