Attached file is always ZERO in size, except for text files

Trying to create a node progrmatically after attaching a file, already existing on the server
but the attached file is always blank and of size ZERO.. any hints?

   <?php
 if ($bill['FILENAME']) {
      $filename = substr($bill['FILENAME'], 16);
      dsm("/var/www/vhosts/xxx.org/public_html/migration/d1/sites/default/files/temp/Upload/" . $filename);
      $file_temp = file_get_contents("/var/www/vhosts/xxx.org/public_html/migration/d1/sites/default/files/temp/Upload/" . $filename);


      $file_temp = file_save_data($file_temp, "public://publicpolicy/" . $filename, FILE_EXISTS_RENAME);
      $file_temp = (array) $file_temp;
      $file_temp['display'] = 1;
      $node->field_tm_bft_file = array('und' => array(
          '0' => $file_temp
        )
      );
    }
    node_object_prepare($node);
    node_submit($node);
    node_save($node);
?>