To the Vilna Gaon, these four names of G-d form a progression. They summarise how man approaches G-d. Kel means not only G-d but judge or legislator. To be HaKel, THE Legislator, means that Hashem rules over the entire universe, His authority is all-inclusive. Perhaps we can understand this apparent paradox by comparing G-d's properties to those of humans.
Schools have a problem of overcrowding.
There are just so many students a teacher can adequately pay attention to. As the number of students grows, each one can only get less and less attention. Not so Hashem. We said already that Hashem Legislates to all, and that He is not limited to looking only at the universal picture, but can pay attention to each and every one of us. G-d has the power and uses it to guide each of us in our daily lives.