Graphs are a natural representation for systems based on relations between connected entities. Combinatorial optimization problems, which arise when considering an objective function related to a process of interest on discrete structures, are often challenging due to the rapid growth of the solution space. The trial-and-error paradigm of Reinforcement Learning has recently emerged as a promising alternative to traditional methods, such as exact algorithms and (meta)heuristics, for discovering better decision-making strategies in a variety of disciplines including chemistry, computer science, and statistics. Despite the fact that they arose in markedly different fields, these techniques share significant commonalities. Therefore, we set out to synthesize this work in a unifying perspective that we term Graph Reinforcement Learning, interpreting it as a constructive decision-making method for graph problems. After covering the relevant technical background, we review works along the dividing line of whether the goal is to optimize graph structure given a process of interest, or to optimize the outcome of the process itself under fixed graph structure. Finally, we discuss the common challenges facing the field and open research questions. In contrast with other surveys, the present work focuses on non-canonical graph problems for which performant algorithms are typically not known and Reinforcement Learning is able to provide efficient and effective solutions.