Correction. My test case was no good. I found it was due to not having any signal going to the bus. I initially tested with a plugin that just passes input from the side-chain into the bus via the FX bin, and that's not enough to "energize" the signal path. When I side-chained a compressor and actually gave the bus an input signal to work on, the bus woke up and started passing both signals.
I think it's considered to be working as intended that buses aren't active unless they're getting a signal at the Input.
Possibly this explains the OP's issue as well.