the included file was right. the instruction was to create a new cmd file in the game's root directory. copy/paste one of the existing cmd files, like the encyclopedia one, rename it to mkflat, then inside, put down:
starter.exe mkflat, users\modwork\14_15_05_mardga_ussr.flatdata, users\modwork\14_15_05_mardga_ussr.!flatlist
Not quite sure how you got that from the manuel. Not trying to be an arse, but if my hunch is correct they're going to be alot of questions in the future about modding SABOW. The manuel is not clear in areas for average joe. Modding should be fun in my ever so humble opinion.