Research on the Evolution and Transformation of Administrative Discretion Regulation: A Systematic Review of Literature
Abstract
This study discusses the development history, recent research, and future directions of regulating the exercise of administrative discretion. Through a systematic literature review, we identified 47 papers published between 1983 and 2025. These studies primarily analyzed the evolution of administrative discretion, the relationship between administrative discretion and the administrative environment, and regulatory approaches for subjects at different levels of administrative discretion. Based on the analysis, we identify a future normative logic for regulating the exercise of administrative discretion that will emphasize a legal focus supplemented by rationality. Administrative discretion is increasingly integrated with ICT, leading to a separation between its consideration and implementation, necessitating a corresponding distinction in its regulation. This study further summarizes current research challenges, including instrumental fragmentation, a lack of evaluation, and insufficient adaptability. We recommend strengthening theoretical integration, empirical research, and localization to promote the systematic development of administrative discretion regulation. This study is the first to systematically integrate multi-dimensional normative research findings at the micro, meso, and macro levels, constructing an interdisciplinary holistic analytical framework for the normative exercise of administrative discretion. By revealing the intrinsic connections and evolution of normative logic at different levels, this study not only enriches the theoretical foundation for the rational exercise of administrative discretion but also provides new explanatory paths and operational insights for institutional design and practical improvement of discretion in the context of digital transformation.
References
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Agostino, D., Saliterer, I., and Steccolini, I. (2020). Digitalization, accounting and accountability: A literature review and reflections on future research in public services. Financial Accountability and Management, 38(2), 152–176. https://doi.org/10.1111/faam.12301
Alexander, J., and Richmond, S. A. (2007). Administrative discretion - Can we move beyond cider house rules? American Review of Public Administration, 37(1), 51–64. https://doi.org/10.1177/0275074006287919
Ali, M. N., Musa, N., and Abd Rahman, M. R. (2022). Judicial control over administrative discretion in Iraq. Hasanuddin Law Review, 8(3), 233–247. https://doi.org/10.20956/halrev.v8i3.3876
AllahRakha, N. (2025). Executive discretion in sports awards: A case study of Pakistan’s Olympians. Cogent Social Sciences, 11(1). https://doi.org/10.1080/23311886.2025.2534414
Appleby, G., and Reilly, A. (2017). Unveiling the public interest: The parameters of executive discretion in Australian migration legislation. Public Law Review, 28(4), 293–309.
Babalola, S. S., and Nwanzu, C. L. (2021). The current phase of social sciences research: A thematic overview of the literature. Cogent Social Sciences, 7(1). https://doi.org/10.1080/23311886.2021.1892263
Badamasiuy, J., and Bello, M. (2013). An appraisal of administrative justice and good governance in Nigeria. Journal of Politics and Law, 6(2), 216–226. https://doi.org/10.5539/jpl.v6n2p216
Bakhtina, I. S., Berendieieva, A. I., Pyshna, A. H., Bilozorov, Y. V., and Kuchuk, A. M. (2023). Administrative discretion in states of full democracy and hybrid regime: The example of Germany and Ukraine. Multidisciplinary Reviews, 6(4), 2023035. https://doi.org/10.31893/multirev.2023035
Banerjee, P., and Chau, P. Y. K. (2004). An evaluative framework for analysing e-government convergence capability in developing countries. Electronic Government, an International Journal, 1(1), 29–48. https://doi.org/10.1504/EG.2004.004135
Bernick, E. D. (2019). Faithful execution: Where administrative law meets the constitution. Georgetown Law Journal, 108(1), 1 - 71.
Bertelli, A. M., Falletti, V., and Cannas, S. (2025). Authorized discretion: The democratic essentials of governance in the European Union. Governance, 38(3). https://doi.org/10.1111/gove.70029
Bhagwat, A. (1998). Modes of regulatory enforcement and the problem of administrative discretion. Hastings Law Journal, 50, 1275–1310.
Binder, T., Karagianni, A., and Scholten, M. (2018). Emergency! But what about legal protection in the EU? European Journal of Risk Regulation, 9(1), 99 - 119. https://doi.org/10.1017/err.2018.8
Bolton, A., and Thrower, S. (2019). The constraining power of the purse: Executive discretion and legislative appropriations. Journal of Politics, 81(4), 1266 - 1281. https://doi.org/10.1086/704330
Bornemann, J. (2019). The guises of and guidance to administrative discretion in the European Court of Justice’s interpretation of EU immigration law. Review of European Administrative Law, 12(1), 97–126. https://doi.org/10.7590/187479819X15656877527205
Bovens, M., and Zouridis, S. (2002). From street-level to system-level bureaucracies: How information and communication technology is transforming administrative discretion and constitutional control. Public Administration Review, 62(2), 174–184. https://doi.org/10.1111/0033-3352.00168
Box, R. C. (1992). The administrator as trustee of the public interest: Normative ideals and daily practice. Administration and Society, 24(3), 323–345. https://doi.org/10.1177/009539979202400303
Boyer, B. B. (1983). “Too many lawyers, not enough practical people”: The policy-making discretion of the Federal Trade Commission. Law and Policy, 5(1), 9–34. https://doi.org/10.1111/j.1467-9930.1983.tb00288.x
Busch, P. A., and Henriksen, H. Z. (2018). Digital discretion: A systematic literature review of ICT and street-level discretion. Information Polity, 23(1), 3–28. https://doi.org/10.3233/IP-170050
Chan, H. S. (1992). Judicial review and control over administrative discretion in the People's Republic of China. Review of Central and East European Law, 18(2), 135–163. https://doi.org/10.1163/157303592X00104
Cinque, S. (2011). Administrative discretion in the management of Swedish wolf policy. Policy Studies, 32(6), 599–614. https://doi.org/10.1080/01442872.2011.626317
Covilla, J. C. (2025). Artificial intelligence and administrative discretion: Exploring adaptations and boundaries. European Journal of Risk Regulation, 16(1), 36–50. https://doi.org/10.1017/err.2024.76
Criado, J. I., Valero, J., Villodre, J., Giest, S., and Grimmelikhuisen, S. (2020). Algorithmic transparency and bureaucratic discretion: The case of SALER early warning system. Information Polity, 25(4), 449–470. https://doi.org/10.3233/IP-200260
Crook, A. D. H. (1989). Multi-occupied housing standards: The application of discretionary powers by local authorities. Policy and Politics, 17(1), 41–58. https://doi.org/10.1332/030557389783219415
Dietrich, B., Jankowski, M., Schnapp, K. U., and Tepe, M. (2023). Prioritizing exceptional social needs: Experimental evidence on the role of discrimination and client deservingness in public employees’ and citizens’ discretionary behavior. Public Policy and Administration. https://doi.org/10.1177/09520767231210025
Eklund, A. M. (2024). Limits to discretion and automated risk assessments in EU border control: Recognizing the political in the technical. European Law Journal, 30(1–2), 103–121. https://doi.org/10.1111/eulj.12513
Engster, D. (2020). A public ethics of care for policy implementation. Australian Journal of Public Administration, 64(3), 621–633. https://doi.org/10.1111/ajps.12487
Franchino, F. (2000). The Commission's executive discretion, information and comitology. Journal of Theoretical Politics, 12(2), 155–181. https://doi.org/10.1177/0951692800012002002
Galligan, D. J. (1990). Discretionary powers: A legal study of official discretion. Clarendon Press. https://doi.org/10.1093/acprof:oso/9780198256526.001.0001
Gao, J. (2019). Politics, law, and administrative discretion: The case of work safety regulation in China. Journal of Chinese Governance, 4(1), 71–90. https://doi.org/10.1080/23812346.2018.1522025
Gardner, A. von der L. (1987). An artificial intelligence approach to legal reasoning. MIT Press.
Haraway, W. M., and Kunselman, J. C. (2006). Ethical leadership and administrative discretion: The fire chief’s hiring dilemma. Public Personnel Management, 35(1), 1–14. https://doi.org/10.1177/0091026006035001
Hart, H. L. A. (1961). The concept of law. Clarendon Press.
Hoon, C. (2013). Meta-synthesis of qualitative case studies. Organizational Research Methods, 16(4), 522–556. https://doi.org/10.1177/1094428113484969
Humphries, M. A., and Songer, D. R. (1999). Law and politics in judicial oversight of federal administrative agencies. Journal of Politics, 61(1), 207–220. https://doi.org/10.2307/2647783
Ip, E. C. (2014). Taking a “hard look” at “irrationality”: Substantive review of administrative discretion in the US and UK Supreme Courts. Oxford Journal of Legal Studies, 34(3), 481–510. https://doi.org/10.1093/ojls/gqu005
Kaneko, H. (2020). Axiology of administrative discretion (Gyōsei Sairyō) as well as administrative guidance (Gyōsei Shidō) in Japan from the perspective of judicial control. Studia Iuridica Lublinensia, 29(3), 135–148. https://doi.org/10.17951/sil.2020.29.3.135-148
Konstant, A. (2016). Rights, administrative discretion and Dawood. South African Journal on Human Rights, 32(1), 106–129. https://doi.org/10.1080/02587203.2016.1162441
Kravchuk, R. S. (1991). Public administration and the rule of law. International Journal of Public Administration, 14(3), 265–301. https://doi.org/10.1080/01900699108524718
Leenes, R. (2003). Abort or retry - A role for legal knowledge-based systems in electronic service delivery? In M. A. Wimmer (Ed.), Knowledge management in electronic government (pp. 63–72). Springer. https://doi.org/10.1007/3-540-44836-5_6
Leonelli, G. C. (2021). Judicial review of compliance with the precautionary principle from Paraquat to Blaise. German Law Journal, 22(2), 184–215. https://doi.org/10.1017/glj.2021.3
Linneberg, M. S., and Korsgaard, S. (2019). Coding qualitative data: A synthesis guiding the novice. Qualitative Research Journal, 19(3), 259–270. https://doi.org/10.1108/QRJ-12-2018-0012
Margulies, P. (2023). Immigration law's boundary problem: Determining the scope of executive discretion. Hastings Law Journal, 74(3), 679–764.
Martinsen, D. S. (2011). Judicial policy-making and Europeanization. Journal of European Public Policy, 18(7), 944–961. https://doi.org/10.1080/13501763.2011.599962
McHarg, A. (2017). Administrative discretion, administrative rule-making, and judicial review. Current Legal Problems, 70(1), 267–303. https://doi.org/10.1093/clp/cux011
Mendes, J. (2016). Discretion, care and public interests in the EU administration. Common Market Law Review, 53(2), 419–451. https://doi.org/10.54648/cola2016036
Moher, D., Liberati, A., Tetzlaff, J., and Altman, D. G. (2009). Preferred reporting items for systematic reviews and meta-analyses: The PRISMA statement. Annals of Internal Medicine, 151(4), 264–269. https://doi.org/10.7326/0003-4819-151-4-200908180-00135
Morgan, D. F. (1987). Varieties of administrative abuse. Administration and Society, 19(3), 267–284. https://doi.org/10.1177/009539978701900301
Oxford University Press. (2024). Regulation. In Oxford English Dictionary. https://www.oed.com
Prek, M., and Lefèvre, S. (2019). Administrative discretion, power of appraisal, and margin of appraisal in judicial review. Common Market Law Review, 56(2), 339–380. https://doi.org/10.54648/cola2019027
Price, Z. S. (2014). Enforcement discretion and executive duty. Vanderbilt Law Review, 67(3), 671–769.
Reddick, C. G., Abdelsalam, H. M., and Elkadi, H. (2011). The influence of e-government on administrative discretion. Public Administration and Development, 31(5), 390 - 407. https://doi.org/10.1002/pad.615
Sigma. (1999). European principles for public administration (SIGMA Papers No. 27). OECD Publishing.
Sossin, L. (2002). Discretion unbound: Reconciling the charter and soft law. Canadian Public Administration, 45(4), 465–489. https://doi.org/10.1111/j.1754-7121.2002.tb01855.x
Tranfield, D., Denyer, D., and Smart, P. (2003). Towards a methodology for developing evidence-informed management knowledge by means of systematic review. British Journal of Management, 14(3), 207–222. https://doi.org/10.1111/1467-8551.00375
Van Rompuy, B. (2022). The European Commission's handling of non-priority antitrust complaints. World Competition, 45(2), 265–293. https://doi.org/10.54648/woco2022010
Varavithya, W., and Esichaikul, V. (2006). Dealing with discretionary decision making in e-government. Electronic Government, 3(4), 356 - 372. https://doi.org/10.1504/EG.2006.010799
Winder, S. (2020). Policymaking in the United States: Constraining a runaway executive branch. Theory and Practice of Legislation, 7(3), 257- 282. https://doi.org/10.1080/20508840.2020.1730098
Agostino, D., Saliterer, I., and Steccolini, I. (2020). Digitalization, accounting and accountability: A literature review and reflections on future research in public services. Financial Accountability and Management, 38(2), 152–176. https://doi.org/10.1111/faam.12301
Alexander, J., and Richmond, S. A. (2007). Administrative discretion - Can we move beyond cider house rules? American Review of Public Administration, 37(1), 51–64. https://doi.org/10.1177/0275074006287919
Ali, M. N., Musa, N., and Abd Rahman, M. R. (2022). Judicial control over administrative discretion in Iraq. Hasanuddin Law Review, 8(3), 233–247. https://doi.org/10.20956/halrev.v8i3.3876
AllahRakha, N. (2025). Executive discretion in sports awards: A case study of Pakistan’s Olympians. Cogent Social Sciences, 11(1). https://doi.org/10.1080/23311886.2025.2534414
Appleby, G., and Reilly, A. (2017). Unveiling the public interest: The parameters of executive discretion in Australian migration legislation. Public Law Review, 28(4), 293–309.
Babalola, S. S., and Nwanzu, C. L. (2021). The current phase of social sciences research: A thematic overview of the literature. Cogent Social Sciences, 7(1). https://doi.org/10.1080/23311886.2021.1892263
Badamasiuy, J., and Bello, M. (2013). An appraisal of administrative justice and good governance in Nigeria. Journal of Politics and Law, 6(2), 216–226. https://doi.org/10.5539/jpl.v6n2p216
Bakhtina, I. S., Berendieieva, A. I., Pyshna, A. H., Bilozorov, Y. V., and Kuchuk, A. M. (2023). Administrative discretion in states of full democracy and hybrid regime: The example of Germany and Ukraine. Multidisciplinary Reviews, 6(4), 2023035. https://doi.org/10.31893/multirev.2023035
Banerjee, P., and Chau, P. Y. K. (2004). An evaluative framework for analysing e-government convergence capability in developing countries. Electronic Government, an International Journal, 1(1), 29–48. https://doi.org/10.1504/EG.2004.004135
Bernick, E. D. (2019). Faithful execution: Where administrative law meets the constitution. Georgetown Law Journal, 108(1), 1 - 71.
Bertelli, A. M., Falletti, V., and Cannas, S. (2025). Authorized discretion: The democratic essentials of governance in the European Union. Governance, 38(3). https://doi.org/10.1111/gove.70029
Bhagwat, A. (1998). Modes of regulatory enforcement and the problem of administrative discretion. Hastings Law Journal, 50, 1275–1310.
Binder, T., Karagianni, A., and Scholten, M. (2018). Emergency! But what about legal protection in the EU? European Journal of Risk Regulation, 9(1), 99 - 119. https://doi.org/10.1017/err.2018.8
Bolton, A., and Thrower, S. (2019). The constraining power of the purse: Executive discretion and legislative appropriations. Journal of Politics, 81(4), 1266 - 1281. https://doi.org/10.1086/704330
Bornemann, J. (2019). The guises of and guidance to administrative discretion in the European Court of Justice’s interpretation of EU immigration law. Review of European Administrative Law, 12(1), 97–126. https://doi.org/10.7590/187479819X15656877527205
Bovens, M., and Zouridis, S. (2002). From street-level to system-level bureaucracies: How information and communication technology is transforming administrative discretion and constitutional control. Public Administration Review, 62(2), 174–184. https://doi.org/10.1111/0033-3352.00168
Box, R. C. (1992). The administrator as trustee of the public interest: Normative ideals and daily practice. Administration and Society, 24(3), 323–345. https://doi.org/10.1177/009539979202400303
Boyer, B. B. (1983). “Too many lawyers, not enough practical people”: The policy-making discretion of the Federal Trade Commission. Law and Policy, 5(1), 9–34. https://doi.org/10.1111/j.1467-9930.1983.tb00288.x
Busch, P. A., and Henriksen, H. Z. (2018). Digital discretion: A systematic literature review of ICT and street-level discretion. Information Polity, 23(1), 3–28. https://doi.org/10.3233/IP-170050
Chan, H. S. (1992). Judicial review and control over administrative discretion in the People's Republic of China. Review of Central and East European Law, 18(2), 135–163. https://doi.org/10.1163/157303592X00104
Cinque, S. (2011). Administrative discretion in the management of Swedish wolf policy. Policy Studies, 32(6), 599–614. https://doi.org/10.1080/01442872.2011.626317
Covilla, J. C. (2025). Artificial intelligence and administrative discretion: Exploring adaptations and boundaries. European Journal of Risk Regulation, 16(1), 36–50. https://doi.org/10.1017/err.2024.76
Criado, J. I., Valero, J., Villodre, J., Giest, S., and Grimmelikhuisen, S. (2020). Algorithmic transparency and bureaucratic discretion: The case of SALER early warning system. Information Polity, 25(4), 449–470. https://doi.org/10.3233/IP-200260
Crook, A. D. H. (1989). Multi-occupied housing standards: The application of discretionary powers by local authorities. Policy and Politics, 17(1), 41–58. https://doi.org/10.1332/030557389783219415
Dietrich, B., Jankowski, M., Schnapp, K. U., and Tepe, M. (2023). Prioritizing exceptional social needs: Experimental evidence on the role of discrimination and client deservingness in public employees’ and citizens’ discretionary behavior. Public Policy and Administration. https://doi.org/10.1177/09520767231210025
Eklund, A. M. (2024). Limits to discretion and automated risk assessments in EU border control: Recognizing the political in the technical. European Law Journal, 30(1–2), 103–121. https://doi.org/10.1111/eulj.12513
Engster, D. (2020). A public ethics of care for policy implementation. Australian Journal of Public Administration, 64(3), 621–633. https://doi.org/10.1111/ajps.12487
Franchino, F. (2000). The Commission's executive discretion, information and comitology. Journal of Theoretical Politics, 12(2), 155–181. https://doi.org/10.1177/0951692800012002002
Galligan, D. J. (1990). Discretionary powers: A legal study of official discretion. Clarendon Press. https://doi.org/10.1093/acprof:oso/9780198256526.001.0001
Gao, J. (2019). Politics, law, and administrative discretion: The case of work safety regulation in China. Journal of Chinese Governance, 4(1), 71–90. https://doi.org/10.1080/23812346.2018.1522025
Gardner, A. von der L. (1987). An artificial intelligence approach to legal reasoning. MIT Press.
Haraway, W. M., and Kunselman, J. C. (2006). Ethical leadership and administrative discretion: The fire chief’s hiring dilemma. Public Personnel Management, 35(1), 1–14. https://doi.org/10.1177/0091026006035001
Hart, H. L. A. (1961). The concept of law. Clarendon Press.
Hoon, C. (2013). Meta-synthesis of qualitative case studies. Organizational Research Methods, 16(4), 522–556. https://doi.org/10.1177/1094428113484969
Humphries, M. A., and Songer, D. R. (1999). Law and politics in judicial oversight of federal administrative agencies. Journal of Politics, 61(1), 207–220. https://doi.org/10.2307/2647783
Ip, E. C. (2014). Taking a “hard look” at “irrationality”: Substantive review of administrative discretion in the US and UK Supreme Courts. Oxford Journal of Legal Studies, 34(3), 481–510. https://doi.org/10.1093/ojls/gqu005
Kaneko, H. (2020). Axiology of administrative discretion (Gyōsei Sairyō) as well as administrative guidance (Gyōsei Shidō) in Japan from the perspective of judicial control. Studia Iuridica Lublinensia, 29(3), 135–148. https://doi.org/10.17951/sil.2020.29.3.135-148
Konstant, A. (2016). Rights, administrative discretion and Dawood. South African Journal on Human Rights, 32(1), 106–129. https://doi.org/10.1080/02587203.2016.1162441
Kravchuk, R. S. (1991). Public administration and the rule of law. International Journal of Public Administration, 14(3), 265–301. https://doi.org/10.1080/01900699108524718
Leenes, R. (2003). Abort or retry - A role for legal knowledge-based systems in electronic service delivery? In M. A. Wimmer (Ed.), Knowledge management in electronic government (pp. 63–72). Springer. https://doi.org/10.1007/3-540-44836-5_6
Leonelli, G. C. (2021). Judicial review of compliance with the precautionary principle from Paraquat to Blaise. German Law Journal, 22(2), 184–215. https://doi.org/10.1017/glj.2021.3
Linneberg, M. S., and Korsgaard, S. (2019). Coding qualitative data: A synthesis guiding the novice. Qualitative Research Journal, 19(3), 259–270. https://doi.org/10.1108/QRJ-12-2018-0012
Margulies, P. (2023). Immigration law's boundary problem: Determining the scope of executive discretion. Hastings Law Journal, 74(3), 679–764.
Martinsen, D. S. (2011). Judicial policy-making and Europeanization. Journal of European Public Policy, 18(7), 944–961. https://doi.org/10.1080/13501763.2011.599962
McHarg, A. (2017). Administrative discretion, administrative rule-making, and judicial review. Current Legal Problems, 70(1), 267–303. https://doi.org/10.1093/clp/cux011
Mendes, J. (2016). Discretion, care and public interests in the EU administration. Common Market Law Review, 53(2), 419–451. https://doi.org/10.54648/cola2016036
Moher, D., Liberati, A., Tetzlaff, J., and Altman, D. G. (2009). Preferred reporting items for systematic reviews and meta-analyses: The PRISMA statement. Annals of Internal Medicine, 151(4), 264–269. https://doi.org/10.7326/0003-4819-151-4-200908180-00135
Morgan, D. F. (1987). Varieties of administrative abuse. Administration and Society, 19(3), 267–284. https://doi.org/10.1177/009539978701900301
Oxford University Press. (2024). Regulation. In Oxford English Dictionary. https://www.oed.com
Prek, M., and Lefèvre, S. (2019). Administrative discretion, power of appraisal, and margin of appraisal in judicial review. Common Market Law Review, 56(2), 339–380. https://doi.org/10.54648/cola2019027
Price, Z. S. (2014). Enforcement discretion and executive duty. Vanderbilt Law Review, 67(3), 671–769.
Reddick, C. G., Abdelsalam, H. M., and Elkadi, H. (2011). The influence of e-government on administrative discretion. Public Administration and Development, 31(5), 390 - 407. https://doi.org/10.1002/pad.615
Sigma. (1999). European principles for public administration (SIGMA Papers No. 27). OECD Publishing.
Sossin, L. (2002). Discretion unbound: Reconciling the charter and soft law. Canadian Public Administration, 45(4), 465–489. https://doi.org/10.1111/j.1754-7121.2002.tb01855.x
Tranfield, D., Denyer, D., and Smart, P. (2003). Towards a methodology for developing evidence-informed management knowledge by means of systematic review. British Journal of Management, 14(3), 207–222. https://doi.org/10.1111/1467-8551.00375
Van Rompuy, B. (2022). The European Commission's handling of non-priority antitrust complaints. World Competition, 45(2), 265–293. https://doi.org/10.54648/woco2022010
Varavithya, W., and Esichaikul, V. (2006). Dealing with discretionary decision making in e-government. Electronic Government, 3(4), 356 - 372. https://doi.org/10.1504/EG.2006.010799
Winder, S. (2020). Policymaking in the United States: Constraining a runaway executive branch. Theory and Practice of Legislation, 7(3), 257- 282. https://doi.org/10.1080/20508840.2020.1730098
Published
2026-03-30
How to Cite
CHUNMEI, Liang; KADIR, Nadhrah A; WENRUI, Zhang.
Research on the Evolution and Transformation of Administrative Discretion Regulation: A Systematic Review of Literature.
Theoretical and Practical Research in Economic Fields, [S.l.], v. 17, n. 1, p. 16 - 30, mar. 2026.
ISSN 2068-7710.
Available at: <https://journals.aserspublishing.eu/tpref/article/view/9367>. Date accessed: 05 apr. 2026.
doi: https://doi.org/10.14505/tpref.v17.1(37).02.
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