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\insrsid11599966 \tab }{\b\f37\fs19\insrsid11599966 Request of Gov. Gutierrez For A Declaratory Judgment, 1996 Guam 4, (Order)
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\f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\f0\insrsid11599966\charrsid11995521 IN THE SUPREME COURT OF GUAM
\par TERRITORY OF GUAM}{\b\f0\insrsid11599966\charrsid11995521 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\b\f0\insrsid11599966\charrsid11995521 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\b\f0\insrsid11599966\charrsid11995521 In re:
\par REQUEST OF GOVERNOR
\par CARL T.C. GUTIERREZ FOR
\par }{\b\f0\insrsid11995521 A DECLARATORY JUDGMENT}{\b\f0\insrsid11599966\charrsid11995521 
\par AS TO THE ORGANICITY
\par OF GUAM PUBLIC LAW 22-42
\par }\pard \ql \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 Supreme Court Case No. CRQ96-001
\par Filed:}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 October 24, 1996}{\f0\insrsid11599966 
\par }\pard \ql \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11995521\charrsid11995521 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\b\f0\insrsid11599966\charrsid11995521 Cite as:}{\b\f0\insrsid11995521  }{\b\f0\insrsid11599966\charrsid11995521 1996 Guam 4
\par }\pard \ql \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11995521\charrsid11995521 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\b\f0\insrsid11599966\charrsid11995521 ____________________________________
\par }\pard \ql \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\b\f0\insrsid11599966\charrsid11995521 ORDER
\par }\pard \ql \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 [1]\tab 
On October 7, 1996, the Governor of Guam filed the following request for a Declaratory Judgment with the Clerk of the Supreme Court of Guam:}{\f0\insrsid11599966 
\par }{\f0\insrsid11995521\charrsid11995521 
\par }\pard \qj \fi432\li432\ri432\widctlpar\faauto\rin432\lin432\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 COMES NOW, Carl T.C. Gutierrez, the governor of Guam, pursuant to 7 G.C.A. }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 4104 and Rule 27 of the Rules of Appellate Procedure for the Supreme Court of Guam, and requests a declaratory judg
ment from the Supreme Court of Guam as to the following question of great public interest affecting the powers and duties of the Governor and the operation of the Executive Branch:
\par }\pard \qj \li0\ri432\widctlpar\faauto\rin432\lin0\itap0\pararsid11995521 {\f0\insrsid11995521 
\par }\pard \qj \fi432\li432\ri432\widctlpar\faauto\rin432\lin432\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 Whether Public Law 22-42, establishing an elected board of education, violates the Organic Act of Guam in that 
it usurps the authority of the governor of his executive branch authority over education?
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11995521 
\par }\pard \qj \fi432\li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 Dated this 7th day of October, 1996.
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11995521 
\par }\pard \qj \fi1296\li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 /ss/ 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11995521 
\par }\pard \qj \fi1296\li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 CARL T.C. GUTIERREZ
\par GOVERNOR OF GUAM
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 
\par [2]\tab This request presents the first instance in which 7 GCA }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 
4104 has been invoked. The provision permits either}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 the Governor or}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
the Legislature to request Declaratory Judgments from this Court in matters affecting the exercise of their respective authorities.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 En
acted as part of the Frank G. Lujan Memorial Court Reorganization Act of 1992 (P.L. 21-147), }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 
4104 provides for the by-passing of normal legal processes and the obtaining of immediate consideration by the Guam Supreme Court, but its application is limited to special circumstances: }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 The Declaratory Judgments may be issued only where it is a matter of great public interest and the normal processes of law would cause undue delay.}{
\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521  (7 GCA }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 4104).
\par 
\par [3]\tab Rule 27 of the Rules of Appellate Procedure for the Supreme Court of Guam reiterates this requirement and places upon the Chief Justice the duty of determining the threshold issues presented.}{\f0\insrsid11995521\charrsid11995521  }{
\f0\insrsid11599966\charrsid11995521 The two prongs of the test, great public interest,}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 and undue delay resulting from normal legal processes, are discussed respectively below.

\par 
\par [4]\tab First, is the question of the elected school board}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 
s organicity one of great public interest?}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 The term }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 public interest}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 
 apparently signifies an importance of the issue to the body politic, the community, in the sense that the operations of the government may be substantially affected one way or the other by the issue}{\f0\insrsid11599966\charrsid11995521 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 s resolution. }{\i\f0\insrsid11599966\charrsid11995521 Cf}{\f0\insrsid11599966\charrsid11995521 . }{
\i\f0\insrsid11599966\charrsid11995521 In re Opinion of the Justices}{\f0\insrsid11599966\charrsid11995521 , 217 Mass. 607, 105 N.E. 440, 441 (1914) }{\i\f0\insrsid11599966\charrsid11995521 and}{\f0\insrsid11599966\charrsid11995521  }{
\i\f0\insrsid11599966\charrsid11995521 In re Opinions of}{\i\f0\insrsid11995521\charrsid11995521  }{\i\f0\insrsid11599966\charrsid11995521 the Justices}{\f0\insrsid11599966\charrsid11995521 , 314 Mass. 767, 49 N.E.2d 252, 255 (1943), in wh
ich the Supreme Judicial Court of Massachusetts discusses the requirements of their somewhat analogous constitutional provision}{\cs15\f0\super\insrsid11599966\charrsid11995521 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\f37\fs20\super\insrsid11599966 1}{\b\f37\fs20\insrsid11599966 The Massachusetts language, drawn from Art. 2, Chap. 3 of that state}{
\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 s constitu
tion is analogous to ours conceptually, if not in its wording, though there are some differences between the two. As noted above, the Massachusetts provision requires that state}{\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 s highest court to give advisory opinions, whereas our Court is called upon to render Declaratory Judgments.  However, the 1985 Source and Comments notes to 7 GCA }{
\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 4104 indicate that Massachusetts is one of the two significant sources for that s
ection and suggests through discussion that the purpose of section 4104 is to decide the types of issues that Massachusetts has dealt with in this manner.
\par }}}{\f0\insrsid11599966\charrsid11995521 .}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 The Massachusetts language requires their high court to provide advisory opinions }{\f0\insrsid11599966\charrsid11995521 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 upon important questions of law, and upon solemn occasions.}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11995521\charrsid11995521  }{\i\f0\insrsid11599966\charrsid11995521 See}{\f0\insrsid11599966\charrsid11995521  105 N.E. 441 (quoting from Massachusetts Constitution, Chap. 3, Art. 2).}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 These cases construe that language to mea
n that the issue presented must be significant in substance and relate to a presently existing governmental duty borne by the branch of government that requests the opinion.
\par 
\par [5]\tab Applying that standard to the present query, this Court takes judicial notice of the fact that the Department of Education is one of the largest departments in Guam}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 s Government and has a mission that directly impacts on nearly every family on the island.}{\f0\insrsid11995521\charrsid11995521 
\par 
\par }{\f0\insrsid11599966\charrsid11995521 Public Law 22-42 entrusts management of that Department to the elected school board which is placed in issue here.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 Per
haps more to the point, this Court is aware of the extensive governmental resources that were involved in the process of 22-42}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 s evolution.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 These included the previous creation of an elected school board that was ruled inorganic}{
\cs15\f0\super\insrsid11599966\charrsid11995521 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\f37\fs20\super\insrsid11599966 2}{
\b\f37\fs20\insrsid11599966 Guam Public Law 14-1, in conjunction with former Government Code }{\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 51
05, created an elected school board that was held inorganic in }{\b\i\f37\fs20\insrsid11599966 Nelson & Wolf v. Ada}{\b\f37\fs20\insrsid11599966 
, et al., Guam Superior Court Case No. S.P. 192-87)(Findings of Fact and Conclusions of Law of Judge Peter C. Siguenza, dated November 6, 1987),}{\b\i\f37\fs20\insrsid11599966  aff}{\b\i\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\i\f37\fs20\insrsid11599966 d}{\b\f37\fs20\insrsid11599966 , 878 F.2d 277 (9th Cir. 1989).
\par }}}{\f0\insrsid11599966\charrsid11995521 , action by Congress to amend the Organic Act to make specific provision for the Guam}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 s school system}{\cs15\f0\super\insrsid11599966\charrsid11995521 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\b\f37\fs20\super\insrsid11599966 3}{\b\f37\fs20\insrsid11599966 See 48 U.S.C.A. }{\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 
1421g(b), which was enacted through Sections 5 and 13(a)(1) of Pub. Law 99-396, Act of August 27, 1986.  This provision was not made retroactive and, therefore, regardless what significance is given the amendment, it could not cure the deficiency i
n the elected school board created by Guam Public Law 14-1 which was inorganic at its inception. 
\par }}}{\f0\insrsid11599966\charrsid11995521 , the enactment of Public Law}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 22-42 itself, and extensive litigation, challeng
ing various aspects of its application, in the Superior Court of Guam}{\cs15\f0\super\insrsid11599966\charrsid11995521 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 
\f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\b\f37\fs20\super\insrsid11599966 \chftn }{\b\f37\fs20\insrsid11599966 The Superior Court cases involved in these challenges include: }{\b\i\f37\fs20\insrsid11599966 
Tainatongo vs. Board of Education}{\b\f37\fs20\insrsid11599966 , et al, SP0114-95; }{\b\i\f37\fs20\insrsid11599966 Gutierrez vs. Board of Education}{\b\f37\fs20\insrsid11599966 , et al. CV1383-95; }{\b\i\f37\fs20\insrsid11599966 Gutierr
ez vs. Board of Education}{\b\f37\fs20\insrsid11599966 , et al., CV1856-95 and }{\b\i\f37\fs20\insrsid11599966 Board of Education vs. Rivera}{\b\f37\fs20\insrsid11599966 , SP0024-96.  Judge Frances Tydingco-Gatewo
od entered a consolidated Judgment, on September 11, 1996, in these matters. An Amended Judgment was filed on October 9, 1996, which was made }{\b\i\f37\fs20\insrsid11599966 nunc pro tunc}{\b\f37\fs20\insrsid11599966 
 to the date of the earlier determination.
\par }}}{\f0\insrsid11599966\charrsid11995521 .}{\f0\insrsid11599966 
\par }{\f0\insrsid11995521\charrsid11995521 
\par }{\f0\insrsid11599966\charrsid11995521 [6]\tab The issue at hand is obviously one of consequence in terms of governmental function and resources.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
It is also clear that the Governor has standing to seek clarification of 22-42 insofar as it may impact on his exercise of authority. Although the concept of}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 great public interest}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521  does not lend itself to precisely drawn boundaries, it is clear in this instance that the issue presented falls within it.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 This }{
\f0\ul\insrsid11599966\charrsid11995521 is}{\f0\insrsid11599966\charrsid11995521  a question of great public interest.
\par 
\par [7]\tab Turning to the issue of undue delay, this concept also lacks bright line demarcation.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 The question requires one to esti
mate, as a practical matter, the relative difference in speed for an issue depending on whether it travels the }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 normal processes of law}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 
 route, or that provided by 7 GCA }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 4104.}{\f0\insrsid11995521\charrsid11995521  }{
\f0\insrsid11599966\charrsid11995521 This standard bears the additional requirement that the anticipated delay be undue, that is to say, excessive or inappropriate.
\par 
\par [8]\tab The present circumstances are unique in framing the issue of delay.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 7 GCA }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 4104 was intended to provide a fast track for the initiation of cases before the Supreme Court of Guam}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
so that rulings could be obtained on important issues of law without time consuming litigation in the inferior court.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 Ironically, the issue presented by the Governor}{
\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 s request has already been litigated and decided in the Superior Court of Guam.}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 It is available for this Court}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 s consideration on direct appeal. In fact, at this point, such appeal is already pending.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
On October 10, 1996 the Guam Attorney General filed a notice of appeal as to the Amended Judgment that is referenced in note}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 4, }{\i\f0\insrsid11599966\charrsid11995521 supra}{
\f0\insrsid11599966\charrsid11995521 .
\par 
\par [9]\tab While one might argue that the declaratory judgment procedure would be faster than an appeal from this point forward, the converse may well be}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 true. 7 GCA }{
\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 4104 and Rule 27 both require that }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 interested parties}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521  be noticed and given an opportunity to be heard prior to this Court}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 s deciding the issue presented by Governor Gutierrez.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 There were numerous parties to the related litigation in the Superior Court and}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 the number of parties, who may claim an interest justifying their participation in the Section 4104 proceedings, could meet or exceed those figures.}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 Just the process of determining which parties should be permitted to be heard may be time consuming.}{\f0\insrsid11995521\charrsid11995521  }{
\f0\insrsid11599966\charrsid11995521 Briefing, argument and decision would follow there as they would in a direct appeal.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
\par 
\par [10]\tab Moreover, the Attorney General of Guam can take steps to accelerate the regular appeal process.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 Rule 7(j)(2) of the Rules Of Appellat
e Procedure for the Supreme Court of Guam addresses expedited transcription.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
And even though this Court has been operational for only a few months, it has already issued orders expediting briefing and argument in instances where delay might prejudice a party.}{\f0\insrsid11995521\charrsid11995521  }{
\f0\insrsid11599966\charrsid11995521 Any party can seek the benefit of expedited processing.
\par  
\par [11]\tab This analysis might be different if the request for a Declaratory Judgment had preceded}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 the trial judge}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 s filing of a Judgment on September 11, 1996. It would certainly have changed the equation regarding relative delay.}{\f0\insrsid11995521\charrsid11995521  }
{\f0\insrsid11599966\charrsid11995521 
\par 
\par [12]\tab It is}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 noteworthy that courts in other jurisdictions have expressed concern generally about answering requests for opinion from a Gov
ernor (or Legislature), when the issue has already been addressed in actual litigation, even where the request does not arise from a litigated case. }{\i\f0\insrsid11599966\charrsid11995521 See In re Answer of the Justices to the House of Representatives}
{\f0\insrsid11599966\charrsid11995521 , 375 Mass. 790, 374 N.E.2d 1345, 1347 (1978)(noting that the court}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 s decision not to answer the question presented, regarding the immunity of witnesses at legislative hearings, was further supported by the issue}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 s having been addressed in previous litigation, apparently because this meant some guidance already existed on the question).}{\f0\insrsid11995521\charrsid11995521  
}{\i\f0\insrsid11599966\charrsid11995521 See also Opinion of the Justices}{\f0\insrsid11599966\charrsid11995521 , 447 So.2d 1305, 1307-08 (Ala. 1984)(declining to provide an advisory opinion where the issue raised was addressed in pending litigation) }{
\i\f0\insrsid11599966\charrsid11995521 and In re Request of Janklow}{\f0\insrsid11599966\charrsid11995521 , 530 N.W.2d 367, 369 (S.D. 1995)(identifying several past determina
tions of the South Dakota Supreme Court where requests for advisory opinions were denied because the issue raised was addressed in pending litigation).
\par 
\par [13]\tab It is unnecessary to resolve here whether this Court could appropriately accept jurisdiction, under 7 GCA }{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\f0\insrsid11599966\charrsid11995521 4104, of an issue that has been litigated to judgment in the court below. Such a procedure threatens a de facto reversal of the trial judge without a review of the proceedings reversed.}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 This may have adverse consequences for our legal community. As the Appellate Division of the District Court of Guam recently observed, }{\f0\insrsid11599966\charrsid11995521 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\f0\insrsid11599966\charrsid11995521 One of the uglier spectacles in any system of jurisprudence is that of}{\f0\insrsid11995521\charrsid11995521  }{
\f0\insrsid11599966\charrsid11995521 two or more courts solemnly deciding questions of law in divergent and inconsistent ways.}{\f0\insrsid11599966\charrsid11995521 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\i\f0\insrsid11599966\charrsid11995521  Board of Education}{\f0\insrsid11599966\charrsid11995521 , et al vs. }{\i\f0\insrsid11599966\charrsid11995521 Rivera}{\f0\insrsid11599966\charrsid11995521 , D.C. No. SP0024-96, Order of October 16, 1996, p.4,}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 (D.Guam App. Div.).}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 While this Court obviously has the authority to re
verse a decision from the inferior courts of Guam, direct appeal provides a mechanism that guards, to some extent, against divergence and inconsistency.
\par 
\par [14]\tab The substitution of a section 4104 proceeding for direct appeal in a case already adjudicated can result in sudden and unexpected changes in the framing of issues and the legal footing of the parties, which could prejudice individual litigants.}{
\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 This would weigh against exercise of our authority under section 4104. }{\i\f0\insrsid11599966\charrsid11995521 Cf. Opinion of the Justices to the Senate}{
\f0\insrsid11599966\charrsid11995521 , 396 Mass. 1211, 486 N.E.2d 1109, 1110 (1985), noting that under their advisory opinion procedure potentially affected persons are not before the court during the determina
tion of such issues and that, in fairness, opinions should not be provided where prejudice may result.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 
While our system provides for interested parties to be heard on the request for Declaratory Judgment, this does not change the fact that the posture of the case is altered and the non-prevailing party given a clean slate to draw upon. }{
\i\f0\insrsid11599966\charrsid11995521 See also Opinion of the Justices}{\f0\insrsid11599966\charrsid11995521 
, 431 So.2d 496 (Ala. 1982), where the Supreme Court of Alabama held that it would not render an advisory opinion to their governor, where the issue was being litigated in a pending case
, even though the case was filed after the request for opinion -- in large part due to concern for the rights of the litigants.
\par 
\par [15]\tab While these concerns suggest that this Court should avoid exercising section 4104 jurisdiction in circumstances like those presented}{\cs15\f0\super\insrsid11599966\charrsid11995521 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\f37\fs20\super\insrsid11599966 5}{\b\f37\fs20\insrsid11599966 
Obviously, where the issue presented amounts to a crisis, the analysis under the }{\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 undue delay}{
\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966  prong would likely be quite different. }{\b\i\f37\fs20\insrsid11599966 Cf. Answer of the Justices}{
\b\f37\fs20\insrsid11599966 , 358 Mass. 833, 265 N.E. 2d 590, 592 (1970) (suggesting that, where a public emergency exists, the jurisdictional constraints of their advisory opinion authority might be excepted.)}}}{\f0\insrsid11599966\charrsid11995521 
, this issue is not reached here.}{\f0\insrsid11995521\charrsid11995521  }{\f0\insrsid11599966\charrsid11995521 Because there is no basis for finding that significant delay will result from proceed
ing through the regular course of appeal, we are barred from exercising jurisdiction in this matter, regardless of other reasons supporting such a refusal.
\par 
\par [16]\tab In summary, this Court does not have the authority to consider the issue presented because one of the two exceptional circumstances required by law to activate our consideration of a Declaratory Judgment is not present}{
\cs15\f0\super\insrsid11599966\charrsid11995521 \chftn {\footnote \pard\plain \qj \fi720\li0\ri-180\nowidctlpar\faauto\rin-180\lin0\itap0 \f5\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\f37\fs20\super\insrsid11599966 6}{
\b\f37\fs20\insrsid11599966 Where the jurisdictional prerequisites of section 4104 are not met, we lack authority to render a judgment on the question. }{\b\i\f37\fs20\insrsid11599966 Compare In re Advisory Opinion to Governor Request}{
\b\f37\fs20\insrsid11599966 , 388 So.2d  554, 555-56 (Fla. 1980)(so construing the provisions of Art. IV, Section 1(c) of the Florida Constitution) }{\b\i\f37\fs20\insrsid11599966 with}{\b\f37\fs20\insrsid11599966 
 1985 Source and Comment Notes following 7 GCA }{\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 
4104 (identifying the preceding Florida provision as the primary source for Guam}{\b\f37\fs20\insrsid11599966 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\b\f37\fs20\insrsid11599966 s provision).
\par }}}{\f0\insrsid11599966\charrsid11995521 . The law therefore dictates that this matter be }{\f0\insrsid11995521 considered as a regular appeal.}{\f0\insrsid11599966\charrsid11995521 
\par 
\par [17]\tab Accordingly, consideration of the question presented for Declaratory Judgment is respectfully DENIED.
\par 
\par }\pard \qj \fi432\li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 IT IS SO ORDERED this 24th day of October, 1996.
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid11995521 {\f0\insrsid11599966\charrsid11995521 PETER C. SIGUENZA
\par Chief Justice
\par ____________
\par }}