login.conf issue

I am using login.conf to set a minimul password length in the default class 
and root class, after adding :minpasswordlen=8: to default and 
:minpasswordlen=11: to root and then running

$ cap_mkdb /etc/login.conf

I can still use a password of 1 character. This is on FreeBSD 5.1-RELEASE 
i386. I have tried this on a 4.8 system and this works fine, did I miss 
something in the release notes?

Below are the steps I took for 5.1

$ vim /etc/login.conf

default:\
         :passwd_format=md5:\
         :copyright=/etc/COPYRIGHT:\
         :welcome=/etc/motd:\
         :setenv=MAIL=/var/mail/$,BLOCKSIZE=K,FTP_PASSIVE_MODE=YES:\
         :path=/sbin /bin /usr/sbin /usr/bin /usr/games /usr/local/sbin 
/usr/local/bin /usr/X11R6/bin ~/bin:\
         :nologin=/var/run/nologin:\
         :cputime=unlimited:\
         :datasize=unlimited:\
         :stacksize=unlimited:\
         :memorylocked=unlimited:\
         :memoryuse=unlimited:\
         :filesize=unlimited:\
         :coredumpsize=unlimited:\
         :openfiles=unlimited:\
         :maxproc=unlimited:\
         :sbsize=unlimited:\
         :vmemoryuse=unlimited:\
         :priority=0:\
         :ignoretime_at_:\
         :umask=022:\
         :minpasswordlen=8:

root:\
         :ignorenologin:\
         :minpasswordlen=8:\
         :tc=default:


$ cap_mkdb /etc/login.conf
$ passwd -l test
Changing local password for test.
New password: a
Retype new password: a
passwd: updating the database...
passwd: done
$

On 4.8, edits to login.conf are the same, and I get this for passwd:
$ passwd -l test
Changing local password for mcarlson.
New password: a
Please enter a password at least 8 characters in length
New password: ^c
Password unchanged.
passwd: /etc/master.passwd: unchanged
$

Thanks

Mike Carlson
carlson39_at_llnl.gov