You can't really do your workflow in a simple manner. If you really want your first chapter in another place than the other chapters, this is just a forum rule that you will have to tell your users.
You can create a chapter if you have permission to create a new article. You can add it to a book if you have permission to edit the chapter AND edit the book. Normally problems adding chapters is due to the test user not having wiki edit permissions in one of your forums, or the chapter is being added to the moderation queue.
Before going crazy trying to find a phantom setting, try editing vault/tab/book.php. Find:
Code:
vault_generate_tabs($wikipost);
Replace with:
Code:
vault_generate_tabs($wikipost, !defined('CHAPTER_CREATED'));
Then ask your user if the problem persists.
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