Users with 'Application Publisher' permissions are not allowed to create environments.
There's a requirement for these users to not create releases in environments. The permissions for the user are defined as per the screenshot below:
CA Release Automation - All versions
To be able to create an environment the user needs to have 'Application Owner' rights, since write permissions are needed to make changes at the environment level. This is by design.
Usually, application owners are superusers who have administrative rights across the application. Publishers are different set of users whose sole responsibility is to perform release duties only.