Problem with EFS Recovery Agent?

Dear Bros. One of my users has encrypted a file on one of the windows 2000 Pro computer part of a domain.However i have already implemented EFS Recovery Agent through Certificate Services. The recovery agent is a power user. But when he want to decrypt that user’s encrypted file he has denied access.Same is the case with built-in administrator account of domain and local. They r also unable to decrypt that file which is encrypted by a simple user. Pls tell me is this a bug of windows or there is any other way to do this.