Steps to view the problem.
Release : 17.3
Component : SDM - Catalog
This problem was viewed when the offering is set to use Policy Based approval, but while in a working environment the default "Assign To Manager" or "assign to spadmin" policies were to Active, on the failing environment there were no valid policies set - the only Active ones have a filter to ensure it is only applied to a different offering.
By enabling this policy we were able to get it working - we always recommend ensuring you have a "low priority" default policy active to catch any offering that fails to meet the filters on all High priority policy definitions.