The problem may occur when the Priority of these problematic recipient policy is set to highest.
- Open ADSI EDIT.
- Configuration(server.domain.com)/CN=Services/CN=Microsoft Exchange/CN=<Exchange Org Name>/CN=Recipient Policies.
- Right click the problematic recipient policy and select Properties. On the Attribute Edit tab, ensure Show only attributes that have values is check.
Find attribute msExchPolicyOrder and Change the attribute msExchPolicyOrder for that policy and set its value to 2.
- Wait for the change to replicate through the domain.
- Try to delete that policy from the ESM