Defining application flow in ASP.NET MVC5
First off I think its a mistake to call your controller Methods after the view they return. I think this is creating a conceptual link which doesn't really exist.

Secondly, presumably the actions which the user takes at the end of each view are either the same regardless of the next view, or depend on what the next view is. I could have step 1: submit customer address -> 2: submit customer phone OR 2: submit customer name -- but the action from 1 is always 'submit address'

OR 

you might have 1: request Phone Detail Form / 1: request name form

If it's the former then the submit address action should contain the workflow logic, and there is no need to decorate the view model, read the settings from config.

If the the later then the view model should include options for the different buttons which may or may not be enabled

If you do put the logic in the action, then yes, I think splitting it into a different workflow class is probably a good idea, even though it's probably going to be tightly coupled, it will give you the option to change it later and make it easy to see where changes just affect the workflow rather than the individual actions.