It sounds as if some of your content is set to not allow page breaks within it.  Have you checked all containing sub forms for the option below?

To help narrow it down a little further:Is this a completely out of the box Workspace installation? Which version of Workspace (ES2/2.5/ADEP/3)?What is different about this user in terms of permissions? Are you expecting them to see an additional start point?

Is anything listed in the server log when this user logs into Workspace?