I have been investigating this problem. I can explain why it is happening and I would call it a bug. In NQ, when you add a question to an item bank and add links or images to the question, the resulting URL points to the course in which the question was created. For example:
<p><img src="/courses/2227273/files/170623712/preview" alt="0.png" /></p>
As a result, only the students in that one course can view these items, which is very unfortunate because banks are supposed to work in any course. When new questions with links to course files are added to a bank, there's a warning about this before you save the question, but the warning is not at all helpful.
As you may recall, in Classic Quizzes, it is possible to reuse question banks in any course without this problem. The links work in classic quizzes because all files referenced in the question are copied to a hidden file store and the links are updated when the question is saved. The links for these files are not course specific and students are allowed to view them whereever the bank is used. Here's a sample link from a question in a classic question bank:
<img id="170619151" src="/assessment_questions/140076810/files/170621199/download?verifier=Wn2oXab5eNwbyrJQZY1g2M4prrsBUwb9kPLbRvaf" alt="ascending.png" />
It's not clear to me why a similar approach was not implemented in NQ Item banks. One the bright side, when legacy banks are migrated to New Quizzes, the links continue to work because they do not reference a specific course.
I am going to submit a bug report to hopefully draw more attention to this issue. At minimum, the current limitations should be documented in the Canvas Guide, How do I add content to an item bank in New Quizzes?