On E120 and E320 routers, switchover is based on the combined states of the line module and the IOAs that are installed in the affected slot.
When the router reboots and the formerly configured primary line module is not present, or is present and fails diagnostics, it switches to a spare line module and takes inventory of the IOAs. If the IOA is present and new, the router reverts back to the primary line module so that the spare line module can service other active primary line modules.
When the router reboots and there is a slot that contains a line module and one active and one inactive IOA, the inactive IOA remains in that state.