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This sounds like a classic case of the Recipient Update Service (RUS)
not having stamped the Exchange attributes on the new user objects in
Active Directory.
If you want to confirm this, use ADSIEdit to view the
properties for a problematic mailbox and check the value of the
showInAddressBook attribute. If you compare this with a good account,
you'll note that all good accounts have this attribute populated whereas
problematic accounts don't. That said, you may find that accounts
suddenly start working after a given time period has elapsed, in which
case your RUS is taking some time to stamp the new accounts. If,
however, your RUS never seems to stamp these objects no matter how long
you wait, then you've got either a problem with RUS configuration or one
with permissions.
See the following Microsoft Knowledge Base Articles
to resolve these issues: 319065, 287137, 286356 and 297124. After that,
your newly created accounts should be able to access their Outlook
without having to be made administrators in your domain.
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