原因分析：

The following are possible causes for this error.

• The ArcGIS for Server PublishingTools are not started.

• Permissions for a published service are set to 'Private, available only to selected users', and no users or roles are specified to have access to the service.

• An incorrect account is used to administer publishing to ArcGIS for Server. This account does not have administrative access and is not part of the agsadmin or publisher groups.

• The ArcGIS Server security configuration settings are incorrect and fail to authenticate the user account publishing the service. Authentication tier and authentication Mode are set to Web for an internal-facing domain.

• ArcGIS for Server connection information is not up-to-date. This can happen when a new site is created or if the ArcGIS Server account permissions are updated.

• ArcGIS for Server fails to authenticate the user account publishing the service. Web-tier authentication is used but Windows authentication is not enabled in Internet Information Services (IIS).

解决办法：

The following are possible solutions for this issue.

• Confirm the ArcGIS for Server PublishingTools service is started. Log in to ArcGIS Server Manager > Services > Publish Service > and click Start Service.

• Modify permissions in ArcGIS Server Manager. The following document describes this in detail: Editing permissions in Manager.

• The ArcGIS account must have the appropriate privileges to publish the service to ArcGIS for Server.

▫ If the ArcGIS for Server machine is part of a domain, the ArcGIS account used to publish a service must be added to a domain group, which grants the appropriate access to publish a service. The following document describes this in detail: Microsoft TechNet: Assign a Windows User or Group to a Role.

▫ For internal-facing sites, set the User Store and Role Store security settings to 'ArcGIS Server Built-in' in the Security Configuration Settings of ArcGIS Server Manager. To do this, follow the steps below:

1. Login to ArcGIS Server Manager > Security > Configuration Settings.
2. Click the edit icon to open the Security Configuration Wizard.
3. Select 'Users and roles from ArcGIS Server’s built-in store', and click Next.
4. Review the configuration, and click Finish.

Note:
If Web-tier authentication is enabled, publishing must be done via the ArcGIS Web Adaptor URL and not the ArcGIS for Server URL.

• Create a service definition (SD) in ArcMap and publish the map service using ArcGIS Server Manager. The following document describes this in detail: ArcGIS for Server:
Creating a service definition in ArcGIS for Desktop.

• Update the ArcGIS for Server connections. Re-create the ArcGIS for Server connection in ArcCatalog and specify the fully qualified domain name (FQDN) and new login information for the site. The following document describes this in detail: Making an administrative connection to ArcGIS Server in ArcGIS for Desktop.

Note:
Before enabling Windows authentication in IIS, confirm that administrative access is enabled on the ArcGIS Web Adaptor. The following document describes this in detail: Configuring ArcGIS Web Adaptor after installation.

• Enable Windows authentication in IIS. The following document describes this in detail: Securing web services with Integrated Windows Authentication.

Note:
With Web-tier security, authentication takes place with IIS, and services must be published through the Web Adaptor connection.

https://support.esri.com/en/technical-article/000013246