A user can only create a file (single document), page (multiple documents) or a 'Document for Approval' if the user profile allows this. There are other 'page types' as well - meetings, policies, tasks, discussions - all controlled on a user by user basis.
The local GVO Manager sets the profile permissions - the checkboxes for each option are shown below.
So - if you want a user to be able to create a 'Document for Approval' (eg minutes, reports etc) then the appropriate checkbox must be set in their profile. If it is not set then that option will not be available to them.