The 'primary_items' field doesn't allow any items that aren't enchantable by default to be enchanted in an enchanting table. For example setting a shield in 'primary_items' (as well as 'supported_items') doesn't allow the shield to be enchanted in an enchanting table.
Linked issues
is duplicated by 4
MC-271685
Usual non-enchantable tools dont work properly with the enchanting table
Resolved
MC-272873
Specifying unusual primary_items in a Custom Enchantment doesn't let that item be used in a table
Resolved
MC-273091
Custom Enchantments do not work in Enchanting Table for all items
Resolved
MC-274010
Not all items can be used in an enchanting table
Resolved
Comments 3
Thank you for your report!
After consideration, the issue is being closed as Invalid.
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I see this was considered Feature Request, so I made a Topic for this Idea...
The Link should work if you are in The MINECRAFT FEEDBACK Discord Guild.
Can confirm. This is because there's no way to specify enchantability on an item, and only items with enchantability can be enchanted in an enchanting table.