Budgeting Discretion: Theory and Evidence on Street-Level Decision-Making

TL;DR

This paper models street-level bureaucrats' discretionary decisions as a dynamic resource allocation problem, revealing how operational constraints and distribution shapes influence override patterns and discretion use.

Contribution

It introduces a principled, dynamic model of discretion rationing over time, highlighting the invariance of exercise rates to potential gain scale and dependence on distribution shape.

Findings

Overrides follow a dynamic threshold rule based on time and budget.

Optimal discretion use depends on the distribution's tail heaviness.

Empirical data from homelessness services supports the model's predictions.

Abstract

Street-level bureaucrats, such as caseworkers and border guards routinely face the dilemma of whether to follow rigid policy or exercise discretion based on professional judgement. However, frequent overrides threaten consistency and introduce bias, explaining why bureaucracies often ration discretion as a finite resource. While prior work models discretion as a static cost-benefit tradeoff, we lack a principled model of how discretion should be rationed over time under real operational constraints. We formalize discretion as a dynamic allocation problem in which an agent receives stochastic opportunities to improve upon a default policy and must spend a limited override budget K over a finite horizon T. We show that overrides follow a dynamic threshold rule: use discretion only when the opportunity exceeds a time and budget-dependent cutoff. Our main theoretical contribution identifies a behavioral invariance: for location-scale families of improvement distributions, the rate at which an optimal agent exercises discretion is independent of the scale of potential gains and depends only on the distribution's shape (e.g., tail heaviness). This result implies systematic differences in discretionary "policy personality." When gains are fat-tailed, optimal agents are patient, conserving discretion for outliers. When gains are thin-tailed, agents spend more routinely. We illustrate these implications using data from a homelessness services system. Discretionary overrides track operational constraints: they are higher at the start of the workweek, suppressed on weekends when intake is offline, and shift with short-run housing capacity. These results suggest that discretion can be both procedurally constrained and welfare-improving when treated as an explicitly budgeted resource, providing a foundation for auditing override patterns and designing decision-support systems.