You are not able to request a new test system from productive system.
Reproducing the Issue
1. Go to Business Configuration work center
2. Select Implementation Project view
3. Select the First Implementation Project and Click Actions and select Request System
You find the Action button is grey out and unable to request for the test system.
Scoping is incomplete,the test system can only be requested after the completion of scoping.
Finish the scoping and confirm the milestone by selecting Confirm Milestone: Design Accepted.
KBA , "request system" , AP-RC-BCT , Business Config. Tools (SAP Business ByDesign , How To