Satrapy requirements:
Code:
and building_present core_building and not building_present govallied and region_religion rel_c 30 and event_counter ecSaka_Imperial 1 or event_counter ecSaka_Imperial 1
30% Eastern Imperial culture.
Urban Satrapy requirements:
Code:
and building_present core_building and not building_present govallied and region_religion rel_c 40 and event_counter ecSaka_Imperial 1 and hidden_resource satrapy and hidden_resource baktria or hidden_resource eastern or hidden_resource indo
40% Eastern Imperial culture, post-Imperial reform, must have the hidden_resource satrapy (only Taksashila and Patala in India qualify).
I suspect the culture is the stumbling block in your game.