So what finally resolved the issue?

TLDR;

the style_json field in the cf_bp_steps table had a negative X value. Change it to a positive value.

Long Winded Monologue

Over the last few years, I have spent extensive time digging through the database tables to gain a deeper understanding of how Laserfiche works. In this particular instance, this upfront work paid off for me.

Every workflow persists the details for workflow steps in the lfforms.dbo.cf_bp_steps table. The table maintains a field titled style_json. I observed after the upgrade the steps which were not being displayed all possessed a negative X coordinate value. I ran a manual update (I always recommend backing up and using checkpoints) to update the field for the records with a negative value to a positive value. After the update, I refreshed the GUI for the forms workflow and the missing steps were rendered on the screen. 

The following is an example of the query I executed:

begin tran sp1


update lfforms.dbo.cf_bp_steps
-- original value, notice the x value is negative
--set style_json = '{"x":-160,"y":424}'
-- use this value after upgrade
set style_json = '{"x":160,"y":500}'
where process_id = #
and step_id = #

-- dont forget to commit or rollback based on your results
rollback tran sp1
commit tran sp1

I hope this saves someone some trouble in the future.

Skip Cherniss