(I might be answering the wrong problem but this question came up on a search for my problem. I'm leaving this here in case someone else stumbles on it.)
The problem seems to be the format of the CSV file you're trying to use. I found I couldn't edit the file using Microsoft Excel because it stored the CSV using DOS UTF-8 and not UNIX ANSI that the bulk administration tool exported.
I used the current Windows Notepad to edit the file, which can save UNIX ANSI. You can use Notepad++, TextPad, or similar tools on Windows to make sure the bulk admin tool can read the edited CSV.