You need to check the permissions to makes sure that they can see them. Specifically, look at who can "browse users" in the project they're raising them in. You probably need to make it match those who have "create"
Note that adding "reporter" will make all the issues visible to all the people in the project with "create" rights.
I have multiple projects that use variations of the same base workflow. The variations depend on the requirements of the project or issue type. The variations mostly come in the form of new statuses ...
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