Had the same problem but then discovered after so much digging around what the webutil configuration file should look like for 11gR2. Check the new configuration file in Locations and Samples of Configuration Files - 11g Release 2 (11.1.2) (Appendix C.10 Default webutil.cfg).
I am sure this will resolve the issue.
If you find that double checking your webutil.cfg doesn't help, be sure to stop ALL related processes (WLS_FORMS, Admin Server, Node Manager, OPMN) then restart.
Regarding the webutil.cfg, there should be not changes required except possibly the references to Jacob. Do NOT take config files from old installations and copy them into a new installation of a newer version. The entries for Jacob 1.14.3 should look like this: