Finally figured this out. I first had to wrap my head around the idea that LDAP is defined not only at the top VCD level, but also at the Organizational level. When I had initially setup the organization, I had defined a OU (ou=users) which was not how I had intended to set it up. To change this, have to login to the VCD URL (https://<FQDN>/cloud), click on manage & monitor, click organizations (top), then right click the organization listed and select properties. There is a tab to configure LDAP. It's probably best to select "custom" if you want to define LDAP users specifically for this organization.
Frankly, it's a little difficult to find some of the configuration areas in VCD. A lot of the LDAP config looks the same in the documentation. In any event, this is the solution in case anyone runs into this problem.