Only agents can raise requests on behalf of another user. Also, as per verified on Raising requests on behalf of, your service desk administrator must have public signup enabled if you want to raise requests on behalf of new customers, or invite customers from the People tab.
Thanks and regards,
Atlassian Support | Cloud
Hi Jeff, In this case, Request Participants could be the answer. As detailed in https://confluence.atlassian.com/display/SERVICEDESK/Adding+people+to+participate+in+requests a customer to raise a request as themselves, and now add other customers to participate in the request. Regards Matt
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