I had no idea that you are developing this mode for multicopter. Than you need to edit mc_pos_control_l1 instead of fw_pos_control_l1.
You are setting these reference rates through uORB messages? Are you sure that you are placing correct time to message headers? I would recommend that you check that the message is being sent well. You can do it with
listener app in PX4.
Witch autopilot are you using?