Yes, this is a glitch with Belrand...
If you don't get him when he brings up the option for the first time, the option doesnt come back a second time.
As for the not getting a steward option for the other NPC's, you can try this:
Disabling Dragonborn temporarily, hiring a steward, then enabling it may fix the problem. (I think it was intended as a PC solution.)
But in your case, you can delete your dlc's, try to hire a steward and install them again afterwards.
Or after deleting them, install only Dawnguard and Hearthfire, try to hire a steward and then install Dragonborn.