State Change On Hold to Response - No Email

**Describe the bug in current situation**
While doing regression testing, it was found that when an applicant does NOT have an email on file, and the request is put on hold to collect the outstanding balance from the response state - IAO can only change the state back to call for records, when they should be able to put it back to Response instead.

**Link bug to the User Story**

**Impact of this bug**
Moderate impact - can be worked around but will confuse and frustrate users

**Chance of Occurring (high/medium/low/very low)**
Low - most applicants have and provide email addresses, so this will not be encountered often.

**Pre Conditions: which Env, any pre-requesites or assumptions to execute steps?**

**Steps to Reproduce**
Steps to reproduce the behavior:
1. Create a general request in TEST and ensure there is no applicant email on file
2. Go through the fee payment scenario by paying a deposit (manually) and leaving an outstanding balance
3. When request moves to response, change state to On-Hold
4. Record payment, and attempt to change state - user can only move to Call for Records or Closed.

**Actual/ observed behaviour/ results**

**Expected behaviour**
GIVEN a Request is in the On-Hold State from the Response State
AND there is no applicant email on file
WHEN the user activates the request state drop down
THEN They will see the options of Response and Closed

**Screenshots/ Visual Reference/ Source**
If applicable, add screenshots to help explain your problem. You an use screengrab.

Reproduce the workflow in TEST: use a request without an applicant email, leave an outstanding balance, move from Response to On-Hold, record payment, and open the state dropdown. Confirm that Response and Closed are available after the fix, rather than only Call for Records and Closed.

Written by the indexing model from the issue text.