Hi Trapper John, and welcome to the forums
Are you sure you fulfill all of the following?
- You must have 2 supply wagon units and 4 artillery units gathered in a region. Note: The artillery units need not be of the same type.
- The units cannot be depleted and must have at least 50% strength.
- The units cannot be in a stack led by an inactive general.
- You must have at least 51% military control of the region in question.
- There must be a city (of any level) in the region.
(You say you fulfill some of these, but what about the 2nd and 4th items?)