If you are using NTFS / Windows Active Directory, the user needs to exist either in the local computer or the Active Directory. You need to manage the local computer where the QlikView Server, and add this user to the local group QlikView Administrators. After that, the user will need to log on in the local computer to get full membership. Now the user is ready to use the Console.
You have to set up a custom directory, so all your security will be stored in the QlikView server in an XML file, and QlikView users will have nothing to do with Active Directory users, if that's what you mean.
To do this, go to the QlikView Management Console (QMC in version 11, QEMC in version 10), System, Directory Service Connectors, expand and expand the server, and click on "Custom Directory". In the right part of the Console, click on the green plus button, and add a new group with its administrator and password. All these users must be hardcoded, so you will have to manually add each one.
Then, in the same panel on the "Users" tab you can create users and groups, assigning users to groups and setting passwords, names and email addresses to users.