plugins not available to new users

Is this normal behavior for WPMU 2.8.4. ?
I have few plugins installed with “Activate Site Wide” option but when new users/blogs are created they wouldn’t have access to those plugins.
The way I can do it though is if I go edit a new blog backend then that blog gets all the options activated.
Again, is this normal ?

I wish I can have three ways of managing the plugins (tried wpmu plugin commander but with no luck at #3):
1. plugins only available to admin.
2. plugins available site wide
3. plugins available only to the users I want

Please advise,
Thanks.