diff --git a/CHANGELOG.rst b/CHANGELOG.rst
index 02a7e0dfa..5343b65ab 100644
--- a/CHANGELOG.rst
+++ b/CHANGELOG.rst
@@ -35,8 +35,9 @@ Motions:
    follow recommendation, manage submitters and supporters, change motion
    category, motion block and origin and manage motion polls [#3913].
  - Added new permission to create amendments [#4128].
- - Added new flag to motion state to control access for different users. Added
-   new permission to see motions in some internal state [#4235, #4518].
+ - Added new flag to motion state to control access restrictions for different
+   users. Added new permission to see motions in some internal state
+   [#4235, #4518, #4521].
  - Allowed submitters to set state of new motions in complex and customized
    workflow [#4236].
  - Added multi select action to manage submitters, tags, states and
diff --git a/openslides/motions/access_permissions.py b/openslides/motions/access_permissions.py
index 655a589a0..ddadaeac4 100644
--- a/openslides/motions/access_permissions.py
+++ b/openslides/motions/access_permissions.py
@@ -37,19 +37,27 @@ class MotionAccessPermissions(BaseAccessPermissions):
                     is_submitter = False
 
                 # Check see permission for this motion.
-                from .models import State
+                restriction = full["state_restriction"]
 
-                if await async_has_perm(user_id, "motions.can_manage"):
-                    level = State.MANAGERS_ONLY
-                elif await async_has_perm(
-                    user_id, "motions.can_manage_metadata"
-                ) or await async_has_perm(user_id, "motions.can_see_internal"):
-                    level = State.EXTENDED_MANAGERS
-                elif is_submitter:
-                    level = State.EXTENDED_MANAGERS_AND_SUBMITTER
-                else:
-                    level = State.ALL
-                permission = level >= full["state_access_level"]
+                # Managers can see all motions.
+                permission = await async_has_perm(user_id, "motions.can_manage")
+                # If restriction field is an empty list, everybody can see the motion.
+                permission = permission or not restriction
+
+                if not permission:
+                    # Parse values of restriction field.
+                    for value in restriction:
+                        if value == "managers_only":
+                            # permission remains false
+                            break
+                        elif value in ("motions.can_see_internal", "motions.can_manage_metadata"):
+                            if await async_has_perm(user_id, value):
+                                permission = True
+                                break
+                        elif value == "is_submitter":
+                            if is_submitter:
+                                permission = True
+                                break
 
                 # Parse single motion.
                 if permission:
diff --git a/openslides/motions/migrations/0023_state_restriction_1.py b/openslides/motions/migrations/0023_state_restriction_1.py
new file mode 100644
index 000000000..59c3c0198
--- /dev/null
+++ b/openslides/motions/migrations/0023_state_restriction_1.py
@@ -0,0 +1,25 @@
+# Generated by Django 2.1.7 on 2019-03-20 15:49
+
+from django.db import migrations
+import jsonfield.encoder
+import jsonfield.fields
+
+
+class Migration(migrations.Migration):
+
+    dependencies = [("motions", "0022_auto_20190320_0840")]
+
+    operations = [
+        migrations.AddField(
+            model_name="state",
+            name="restriction",
+            field=jsonfield.fields.JSONField(
+                default=list,
+                dump_kwargs={
+                    "cls": jsonfield.encoder.JSONEncoder,
+                    "separators": (",", ":"),
+                },
+                load_kwargs={},
+            ),
+        )
+    ]
diff --git a/openslides/motions/migrations/0023_state_restriction_2.py b/openslides/motions/migrations/0023_state_restriction_2.py
new file mode 100644
index 000000000..46c483dbb
--- /dev/null
+++ b/openslides/motions/migrations/0023_state_restriction_2.py
@@ -0,0 +1,36 @@
+# Generated by Django 2.1.7 on 2019-03-20 15:49
+
+from django.db import migrations
+import jsonfield.encoder
+import jsonfield.fields
+
+
+def copy_access_level(apps, schema_editor):
+    """
+    Sets new restriction field of states according to access_level.
+    """
+    # We get the model from the versioned app registry;
+    # if we directly import it, it will be the wrong version.
+    State = apps.get_model("motions", "State")
+    for state in State.objects.all():
+        if state.access_level == 3:
+            state.restriction = ["managers_only"]
+        elif state.access_level == 2:
+            state.restriction = [
+                "motions.can_see_internal",
+                "motions.can_manage_metadata",
+            ]
+        elif state.access_level == 1:
+            state.restriction = [
+                "motions.can_see_internal",
+                "motions.can_manage_metadata",
+                "is_submitter",
+            ]
+        state.save(skip_autoupdate=True)
+
+
+class Migration(migrations.Migration):
+
+    dependencies = [("motions", "0023_state_restriction_1")]
+
+    operations = [migrations.RunPython(copy_access_level)]
diff --git a/openslides/motions/migrations/0023_state_restriction_3.py b/openslides/motions/migrations/0023_state_restriction_3.py
new file mode 100644
index 000000000..152872f8a
--- /dev/null
+++ b/openslides/motions/migrations/0023_state_restriction_3.py
@@ -0,0 +1,10 @@
+# Generated by Django 2.1.7 on 2019-03-20 15:55
+
+from django.db import migrations
+
+
+class Migration(migrations.Migration):
+
+    dependencies = [("motions", "0023_state_restriction_2")]
+
+    operations = [migrations.RemoveField(model_name="state", name="access_level")]
diff --git a/openslides/motions/models.py b/openslides/motions/models.py
index 97d1e5ecd..e198ed4c8 100644
--- a/openslides/motions/models.py
+++ b/openslides/motions/models.py
@@ -985,24 +985,6 @@ class State(RESTModelMixin, models.Model):
     state.
     """
 
-    ALL = 0
-    EXTENDED_MANAGERS_AND_SUBMITTER = 1
-    EXTENDED_MANAGERS = 2
-    MANAGERS_ONLY = 3
-
-    ACCESS_LEVELS = (
-        (ALL, "All users with permission to see motions"),
-        (
-            EXTENDED_MANAGERS_AND_SUBMITTER,
-            "Submitters, authorized users (with permission to see internal motions), managers and users with permission to manage metadata",
-        ),
-        (
-            EXTENDED_MANAGERS,
-            "Only authorized users (with permission to see internal motions), managers and users with permission to manage metadata",
-        ),
-        (MANAGERS_ONLY, "Only managers"),
-    )
-
     name = models.CharField(max_length=255)
     """A string representing the state."""
 
@@ -1024,11 +1006,22 @@ class State(RESTModelMixin, models.Model):
     Default value is 'primary' (blue).
     """
 
-    access_level = models.IntegerField(choices=ACCESS_LEVELS, default=0)
+    restriction = JSONField(default=list)
     """
-    Defines which users may see motions in this state e. g. only managers,
-    authorized users with permission to see internal motiosn, users with permission
-    to manage metadata and submitters.
+    Defines which users may see motions in this state:
+
+    Contains a list of one or more of the following strings:
+     * motions.can_see_internal
+     * motions.can_manage_metadata
+     * is_submitter
+     * managers_only
+
+    If the list is empty, everybody with the general permission to see motions
+    can see this motion. If the list contains 'managers_only', only managers with
+    motions.can_manage permission may see this motion. In all other cases the user
+    shall have one of the given permissions respectivly is submitter of the motion.
+
+    Default: Empty list so everybody can see the motion.
     """
 
     allow_support = models.BooleanField(default=False)
diff --git a/openslides/motions/serializers.py b/openslides/motions/serializers.py
index 710314c29..cefd072e9 100644
--- a/openslides/motions/serializers.py
+++ b/openslides/motions/serializers.py
@@ -1,5 +1,6 @@
 from typing import Dict, Optional
 
+import jsonschema
 from django.db import transaction
 
 from ..core.config import config
@@ -101,7 +102,7 @@ class StateSerializer(ModelSerializer):
             "name",
             "recommendation_label",
             "css_class",
-            "access_level",
+            "restriction",
             "allow_support",
             "allow_create_poll",
             "allow_submitter_edit",
@@ -113,6 +114,30 @@ class StateSerializer(ModelSerializer):
             "workflow",
         )
 
+    def validate_restriction(self, value):
+        """
+        Ensures that the value is a list and only contains valid values.
+        """
+        schema = {
+            "$schema": "http://json-schema.org/draft-07/schema#",
+            "title": "Motion workflow state restriction field schema",
+            "description": "An array containing one or more explicit strings to control restriction for motions in this state.",
+            "type": "array",
+            "enum": [
+                "motions.can_see_internal",
+                "motions.can_manage_metadata",
+                "is_submitter",
+                "managers_only",
+            ],
+        }
+
+        # Validate value.
+        try:
+            jsonschema.validate(request.data, schema)
+        except jsonschema.ValidationError as err:
+            raise ValidationError({"detail": str(err)})
+        return value
+
 
 class WorkflowSerializer(ModelSerializer):
     """
@@ -369,7 +394,7 @@ class MotionSerializer(ModelSerializer):
     polls = MotionPollSerializer(many=True, read_only=True)
     modified_final_version = CharField(allow_blank=True, required=False)
     reason = CharField(allow_blank=True, required=False)
-    state_access_level = SerializerMethodField()
+    state_restriction = SerializerMethodField()
     text = CharField(allow_blank=True)
     title = CharField(max_length=255)
     amendment_paragraphs = AmendmentParagraphsJSONSerializerField(required=False)
@@ -404,7 +429,7 @@ class MotionSerializer(ModelSerializer):
             "supporters",
             "state",
             "state_extension",
-            "state_access_level",
+            "state_restriction",
             "statute_paragraph",
             "workflow_id",
             "recommendation",
@@ -509,9 +534,9 @@ class MotionSerializer(ModelSerializer):
 
         return result
 
-    def get_state_access_level(self, motion):
+    def get_state_restriction(self, motion):
         """
-        Returns the access level of this state. The default is 0 so everybody
+        Returns the restriction of this state. The default is an empty list so everybody
         with permission to see motions can see this motion.
         """
-        return motion.state.access_level
+        return motion.state.restriction
diff --git a/tests/integration/motions/test_viewset.py b/tests/integration/motions/test_viewset.py
index a7741dfd1..08ea4ab75 100644
--- a/tests/integration/motions/test_viewset.py
+++ b/tests/integration/motions/test_viewset.py
@@ -477,11 +477,11 @@ class RetrieveMotion(TestCase):
                 username=f"user_{index}", password="password"
             )
 
-    def test_guest_state_with_access_level(self):
+    def test_guest_state_with_restriction(self):
         config["general_system_enable_anonymous"] = True
         guest_client = APIClient()
         state = self.motion.state
-        state.access_level = State.MANAGERS_ONLY
+        state.restriction = ["managers_only"]
         state.save()
         # The cache has to be cleared, see:
         # https://github.com/OpenSlides/OpenSlides/issues/3396
@@ -490,17 +490,16 @@ class RetrieveMotion(TestCase):
         response = guest_client.get(reverse("motion-detail", args=[self.motion.pk]))
         self.assertEqual(response.status_code, 404)
 
-    def test_admin_state_with_access_level(self):
+    def test_admin_state_with_restriction(self):
         state = self.motion.state
-        state.access_level = State.MANAGERS_ONLY
-
+        state.restriction = ["managers_only"]
         state.save()
         response = self.client.get(reverse("motion-detail", args=[self.motion.pk]))
         self.assertEqual(response.status_code, status.HTTP_200_OK)
 
-    def test_submitter_state_with_access_level(self):
+    def test_submitter_state_with_restriction(self):
         state = self.motion.state
-        state.access_level = State.EXTENDED_MANAGERS_AND_SUBMITTER
+        state.restriction = ["is_submitter"]
         state.save()
         user = get_user_model().objects.create_user(
             username="username_ohS2opheikaSa5theijo",
diff --git a/tests/unit/motions/test_projector.py b/tests/unit/motions/test_projector.py
index bb46b7564..a8b0eb1eb 100644
--- a/tests/unit/motions/test_projector.py
+++ b/tests/unit/motions/test_projector.py
@@ -29,7 +29,7 @@ def all_data():
             "supporters_id": [],
             "state_id": 1,
             "state_extension": None,
-            "state_access_level": 0,
+            "state_restriction": [],
             "statute_paragraph_id": None,
             "workflow_id": 1,
             "recommendation_id": None,
@@ -118,7 +118,7 @@ def all_data():
             "supporters_id": [],
             "state_id": 1,
             "state_extension": None,
-            "state_access_level": 0,
+            "state_restriction": [],
             "statute_paragraph_id": None,
             "workflow_id": 1,
             "recommendation_id": None,
@@ -151,7 +151,7 @@ def all_data():
             "supporters_id": [],
             "state_id": 1,
             "state_extension": None,
-            "state_access_level": 0,
+            "state_restriction": [],
             "statute_paragraph_id": 1,
             "workflow_id": 1,
             "recommendation_id": None,
@@ -178,7 +178,7 @@ def all_data():
                     "name": "submitted",
                     "recommendation_label": None,
                     "css_class": "primary",
-                    "access_level": 0,
+                    "restriction": [],
                     "allow_support": True,
                     "allow_create_poll": True,
                     "allow_submitter_edit": True,
@@ -194,7 +194,7 @@ def all_data():
                     "name": "accepted",
                     "recommendation_label": "Acceptance",
                     "css_class": "success",
-                    "access_level": 0,
+                    "restriction": [],
                     "allow_support": False,
                     "allow_create_poll": False,
                     "allow_submitter_edit": False,
@@ -210,7 +210,7 @@ def all_data():
                     "name": "rejected",
                     "recommendation_label": "Rejection",
                     "css_class": "danger",
-                    "access_level": 0,
+                    "restriction": [],
                     "allow_support": False,
                     "allow_create_poll": False,
                     "allow_submitter_edit": False,
@@ -226,7 +226,7 @@ def all_data():
                     "name": "not decided",
                     "recommendation_label": "No decision",
                     "css_class": "default",
-                    "access_level": 0,
+                    "restriction": [],
                     "allow_support": False,
                     "allow_create_poll": False,
                     "allow_submitter_edit": False,