Usually the subtext is that they’ve created a promotion process which is onerous, they are under paying you market rate, and/or management doesn’t want to make hard decisions or uphold their side of the bargain. The last thing I want to do as an IC after I’ve crawled through glass for several years to accomplish something Herculean is draft documents that defend my accomplishments from bureaucrats.
When I hear comments like that, I raise my eyebrows because it’s almost tempting me to apply elsewhere. I don’t know why, when presented with mountains of evidence, managers can’t just make a reasoned judgment call and grant promotions when appropriate, unassisted.