There doesn't seem to be anything really significant between the config.tcl version you are using and the current one for 4.5 (oacs-5-3):
http://cvs.openacs.org/cvs/openacs-4/etc/config.tcl?r1=1.32&r2=1.39.2.3
Try either using aolserver 4.0.10, or working with a fresh config file.
Also, I have experienced that "packages-install.tcl file not found" error.. when adapting a fresh openacs to freebsd.. I just can't remember the cause/fix right now, but I'm fairly certain it's related to the config.tcl (nsd.tcl) file or the startup script (and environmental variables).
It may be that serverroot or pageroot variables needs to be manually set in the config.tcl file.