This issue occurs due to the presence Cisco bug ID CSCse25311.
After a CiscoSecure ACS (for Windows or Solution Engine) upgrade from version 3.3 to version 4.0, services fail to start. The CSRadius shows that services start but never finish.
This behavior is the same as documented in Cisco bug ID CSCsc95237, but the root cause is an empty IP address field rather than a space. The cause is a Network Access Server (NAS) with an empty IP address field. If the post-upgrade utility is run, the offending devices look like this:
Hostname: NETWORKDEVICE Ip:.
As a workaround, delete the NAS on CiscoSecure ACS version 3.3 before the upgrade is completed.