Are you absolutely sure that the work item actually is still waiting is not completed? See the WI status from table SWW*HEAD. (Just to make sure that the workflow log is showing the WI status correctly.) It doesn't make sense to have step 3 completed when 2 is still not completed (IF the steps are sequential and not somehow parallel).
As a general question, do you really need the dummy step for waiting? Couldn't you just wait in the actual mail sending step (use requested start or whatever that suits to your requirement)?
Regards,
Karri