I don’t know why the solid operation failed but Eneroth Face Creator could perhaps be useful to fill in the missing faces, without having to do it manually. Beware that the extension may create unwanted faces if you edges form flat closed loops at other places in the model.
Part of the problem comes from the weird alignment of the hole cutting shapes and the fact that their tapers aren’t uniform. The angle on one side is greater than the other. You can see this in a top view.
Eneroth Solid Tools. I use components only and the native solid tools convert components to groups which wrecks my workflow. Eneroth Solid Tools respect the components.
I created the cutting objects by tracing a circle segment. However, the segment was not on an axis. I recreated them using a segment that was centred on an axis, resulting in symmetrical shapes.
I copied the ring, and added a single instance of the smaller hole to one copy. I also added a single instance of the larger hole to the other copy. Again, I used Intersect Faces and removed the unwanted elements:
That edge should prevent the geometry from being solid. Edges that bind exactly 2 faces (or any even number depending on your definition of solid) are allowed, regardless of what the angle is between the faces.