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Can I allow users to PUBLISH articles in certain categories without giving them the ability to publish to any category. It seems that they can create articles but then the article requires someone with PUBLISH permission to actually publish the article.

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We have a feature called Access Control List (ACL), with this you can create
a user groups and assign them permissions to access, create, edit or delete
content or modify certains parts of your site like articles, categories, modules,
global configurations, etc.

When you create for example your category, you can assign a user group in
the Permissions Tab.

Here some docs: https://docs.joomla.org/ACL

Here a full example: https://docs.joomla.org/J3.x:Access_Control_List_Tutorial

Best Regards!

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