The allocation of files is essential to the efficiency and effectiveness of a distributed system that must meet geographically dispersed data processing demands. In this paper, we address an optimization model that generates optimal file migration policies in distributed database systems. The proposed model is a more generalized model that includes system's capacity constraints - computing sites' storage capacity and communication networks' capacity - which have not taken into consideration in previous researches. Using this model, we can establish initial file allocation, file reallocation and file migration polices that minimize a system operating cost under system's capacity constraints at an initial system design or reorganization point The proposed model not only can be adopted by small-sized systems but also provides a foundation for effective and simple heuristics for adaptive file migration in large systems.