Drupal Commons add automation using Workflow modules to solve the problem of Wiki/Article Publishing for End users
your subject is quite different than the question you ask. If its just a permission issue then you need to check under roles and permission. Sometime we cannot give all rights required to for mod or data entry access, so best is to copy administrator role and remove all critical permission and assign only what you want to give (to specific piece of content).

Btw, workbench is only used for permissions and not for the work flow. Its a like creating a working space for certain set of people (work bench) with adequate permissions, that's it.

If your question is regarding your subject of how to create workflow, then look at maestro module https://drupal.org/project/maestro to create GUI based logical workflow with great level of approvals, check point and notification options.

I researched Maestro week back for my friend and worked for a short while.