George,
As you know from a physics perspective, any voltage will force current if the circuit is "completed" (not open). i.e. If the circuit has less than infinite resistance throughout it.
Hence, I can't wrap my brain around how a solar panel could sit at some voltage with a completed circuit to the battery and still not force some current into the battery .... well at least one electron's worth. I'll bet it's that the controllers that are automatically shutting off (opening the circuit), thus appearing to the user that the solar panel is "no longer able" to supply some current to a battery.
Don't some controllers shut off at lower input voltages than others?