Dropdown list is empty

I have an email add view with a dropdown list for a field called
to_user_id (relating to the users table). The problem is that the
dropdown list is empty. Here is code from the controller:

$recipients = $this->Email->Recipient->find('list');
$this->set(compact('recipients'));

...and in the add.ctp file:

echo $this->Form->input('to_user_id');

I don't know if this makes a difference but in the users model:

var $displayField = 'username';

In the email model:

var $belongsTo = array(
'Recipient' => array(
'className' => 'User',
'foreignKey' => 'to_user_id',
'conditions' => '',
'fields' => '',
'order' => ''
),
...

Any ideas as to why the dropdown list is empty?

Thanks.

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