If this were a custom workflow solution, I would ask the workflow developer to detect if there was no user associated with Level N release, and if there is no user, allow the workflow to continue to Level N+1.
I'd take a look around at what workflows are available for your system (use transaction SWO1 to find the business object and then do a where-used). You may not be able to use SAP delivered workflows 'out of the box' but they will give you a good idea of how they work, and what you would need to change (ie: copy the SAP delivered WF and enhance it to your needs).
Good luck,
Sue
Bluesky
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