Ex-England paceman Angus Fraser says he has seen other bowlers whose actions are illegal but have not been reported.
Sussex seamer James Kirtley has been suspended after tests showed his elbow extends beyond the 15 degrees allowed.
But Fraser, who is on the International Cricket Council's committee advising on the legality of deliveries, believes it is difficult for umpires to spot.
"I was looking at several bowlers that were over 15 degrees that no-one doubts so it isn't that easy to see," he said.
"So when an umpire sees something he doesn't like in a bowler's action he has every right to inform the authorities and have him tested because more often than not that proves to be correct.
"But it's not every bowler you can see that with."
Kirtley was twice reported by umpires last season and cannot bowl again until a further analysis shows he has corrected his action.
He was reported previously in October 2001 when he broke into the England team for the one-day matches in Zimbabwe.
The 30-year-old underwent remedial action to modify the problem but he has hyperextensive elbows, which means they bend backwards slightly and give off the appearance of throwing.
Fraser believes there is no sinister intention on the bowler's part to gain an advantage.
"Throwing is not an accusation that bowlers enjoy because there is a suggestion of cheating," he told BBC Radio Four.
"But all bowlers' actions are unique and some maybe do straighten their arms slightly more than others and that is James Kirtley's problem.
Kirtley's action has come under the microscope before
"Biomechanics experts say bowlers have two types of actions - a "javelin thrower" drops his left shoulder, really opens up and gets the elbow in.
"And there's the "discus thrower" which is a very round straight-arm delivery. Discus throwers don't throw but javelin actions do throw a bit.
"That's what James Kirtley has to work at really - not falling away and opening up and making sure there isn't a twist or straightening of his arm as it comes over."
Despite the controversy, Fraser is confident the Sussex paceman can return to competitive action in a sport which he insists is trying to get away from a culture of dark accusations.
"People look at bowlers who have been done for throwing and basically say they should be booted out of the game," he added.
"But I think everybody is trying to reduce the nastiness behind it.
"If James works this winter, goes in front of the same panel and passes a test he's free to carry on his career as if nothing happened."