[exim] Exim filter does not work

Hello all.

First, sorry my english. I have a filter that does not work in my cPanel
hosting using Exim.

user1@???, user2@??? and user3@??? can only send
messages between them and the rest is blocked( block all for world)

Configuration in /etc/cpanel_exim_system_filter:

if $sender_address is "user1@???" and "$h_to:, $h_cc:" is not
"(user2|user3)@domain.com" then
       fail text "Sent message for World is blocked!"
       seen finish
endif

but does not work!

Tried to use "does not macth" and "does not contain". Also tried to use
regex exception '!', i.e: ".. is not "!(user1|user2)@domain.com", but does
not work.
If the field "To:" has only user@??? the message is blocked. If
the field "To:" has user2@??? and user@??? the message
is not blocked.

Can anyone help me?