When the images=LINKED option is enabled the odt contains links to the images instead of the embed image. That is fine. The problem however is that the xlink:href points to a temporary path on the server
<draw:image xlink:href="file:/var/opt/daisy-pipeline2/jobs/8adbfdf8-dc55-4b9b-928f-b91a38ceee1a/context/der_staat/cover.jpg" xlink:type="simple" xlink:show="embed" xlink:actuate="onLoad"/>
If I modify these links to a relative path and place the images in the same directory as the odt file, the file opens correctly and the images are showing.
<draw:image xlink:href="../cover.jpg" xlink:type="simple" xlink:show="embed" xlink:actuate="onLoad"/>