Add placeholder graphic layers on map

Any suggestion on how to implement the below business functions using workflow:

1. User adds two or more empty graphic layers to the map and gives a name for each layer, the layers should appear in the layer list.

2. User can turn on/off the visibility of each layer on the layer list 

3. User draws features with attributes on each layer 

Q: It seems no way to implement step 1 using out-of-box activities in workflow? Does it have to do custom workflow development?

Thanks