Create permission and admin content permission

Hello,
I have some problems with permissions in drupal. Sorry, if this has been posted already, but I have searched the archives and didn't find an answer.

As I understand, the administer node permission overrides the create node permission, but does not override the view/update/delete permission. Why?

Scenario: I want to implement a simple workflow, where only one role ("publisher") can publish content. Other roles can only create/update/delete certain node types (some node types should also even be viewed by certain roles only). In addition the role with publish admission also should not create any content (create admission is assigned to the other roles). The target is to allow "publishers" to only publish content their other roles allow access to.

Solution: The "publisher" role gets the administer node permission and nothing else (no view, update nor delete permission). View, update and delete permission is assigned to other roles. User with role "publisher" must then have another role to access the content to publish! The administer node permission is required to access the "workflow" group in the node edit form.

Problem: Now the "publisher" role can create any content. That's indeed not that what I wanted! On the other hand, if the "publisher" creates a content and no other of his roles allow to view/update/delete this content type, he is lost!

How to solve this problem!