City solicitor tells committee: full governmental-form changes require an elected charter commission

City Solicitor Alexander Koulouris presented the legal framework for charter amendment at the Aug. 17 MLO meeting, differentiating between plan charters, home rule charters and special legislation.

Koulouris emphasized Worcester operates under a modified Plan E home rule charter. He told the committee that while the council can use home-rule petitions or request special legislation to address targeted issues, "the only way that we can do a full review of our charter and change our form of government is by the charter review commission," and that commission must be elected by voters.

The solicitor also highlighted statutory protections and requirements: charter commissions are independent, commissioners must be elected (not appointed by council), and the Attorney General must review proposed charter text before it may be placed on a ballot. Koulouris noted common modern charter provisions—automatic periodic review, budget process clarifications and strengthened oversight structures—are policy choices that must be reconciled with state law.

He answered procedural questions from councilors about when and how ordinances are prepared and whether special legislation can be used for some reforms, reiterating that special acts cannot alter the form of government or terms of elected offices.