1) I would recommend you disable Steam cloud. Then you will have direct control of you user.ini file inside the 1C Softclub folder. If you don't have a user.ini file or it's empty inside it is because of Steam cloud. Disable it.
2) Your custom loadouts will not work in singleplayer, it's been a bug since release. Configure your ammo belt in the Options > Plane screen and use Save As. Be sure to hit OK and not Back after saving. Now you can either join a multiplayer server to test or open a single player mission in the FMB, select your loadout, and play through FMB.
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