API: State transition for provisional approval

This ticket is separated from the provisional approval in the auto approval job as this logic will not be in the job.
Business rules for the state transition tbd

I need to add this to the ticket related to cancelling a registration

No files, tests, or entry points are named in the ticket. First review the related registration-cancellation ticket and define the provisional-approval state-transition business rules before locating the implementation and deciding what tests should demonstrate completion.

Written by the indexing model from the issue text.