Owner of timeLockController contract could change settings QuorumNumerator. But new value will be used also for proposals, which were created before it.
Function state() in Governance contract call quorum() function, which use current values of quorumNumerator.
If owner change QuorumNumerator value, old proposals, which before could not be executed, could be executed now due new variable value(low values than before), because before they do not have enough votes FOR and now could have enough. IIts defenetly bad situation. New values should be applied only for new proposals.
Yes, owner is trusted, but I talk about normal value, which could cause that bad proposals (previous created) could be exeuted.
Also, when user creates proposal, he know how much votes FOR should be in proposal, for executing, but when owner has change it, it change situation. If user know current value, maybe he did not created hisproposal.
Manual review
Apply new values only for new proposals.
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