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\par }{\b\insrsid8588550\charrsid8416878 OF LAND MANAGEMENT, GIL\tab }{\insrsid8588550\charrsid1328672 )}{\insrsid8588550\charrsid8416878 
\par }{\b\insrsid8588550\charrsid8416878 A. SHINOHARA, in his official\tab }{\insrsid8588550\charrsid1328672 )}{\insrsid8588550\charrsid8416878 
\par }{\b\insrsid8588550\charrsid8416878 capacity as Director,\tab \tab }{\b\insrsid1328672 \tab }{\insrsid8588550\charrsid1328672 )}{\insrsid8588550\charrsid8416878 
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\b\insrsid8588550\charrsid8416878 OPINION}{\insrsid8588550\charrsid8416878 
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\par }{\b\insrsid8588550\charrsid8416878 Advisory Services, Inc.,\tab \tab }{\insrsid8588550\charrsid1328672 )}{\insrsid8588550\charrsid8416878 
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\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid1328672 {\insrsid8588550\charrsid8416878 Filed June 4, 1998}{\insrsid8588550 
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\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid1328672 {\insrsid8588550\charrsid8416878 Appeal from the Superior Court of Guam
\par Argued and Submitted on 10 December 1997
\par Hag\'e5t\'f1a, Guam}{\insrsid8416878 
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\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\ul\insrsid8588550\charrsid8416878 Appearing for the Respondent-Appellant:}{\insrsid8588550\charrsid8416878 
\par MARIA G. FITZPATRICK
\par Assistant Attorney General
\par Office of the Attorney General
\par Guam Judicial Center, Ste. 2-200E
\par 120 West O'Brien Drive
\par Hag\'e5t\'f1a, Guam 96910
\par 
\par BEFORE:}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 PETER C. SIGUENZA, Chief Justice; JANET HEALY WEEKS and EDUARDO A. CALVO, Associate Justices.}{\insrsid8416878 
\par 
\par }{\b\insrsid8588550\charrsid1328672 WEEKS, J.:
\par }{\b\insrsid1328672\charrsid8416878 
\par }{\b\insrsid8588550\charrsid8416878 [1]}{\insrsid8588550\charrsid8416878 \tab The Territorial Land Use Commission ("TLUC"), successor to the Territorial Planning Commission ("TPC
"), is appealing a judgment of the Superior Court denying a Petition for a Writ of Mandate.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
The court, while denying the injunctive relief and finding no abuse of discretion by the TLUC, ordered the TLUC to promulgate specific rules and regulations relating to procedures for approving zone changes.
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Petitioners-Appellees Lee and Joan Holmes ("Holmes") sought a writ of mandamus challenging the granting of a zoning change by the TPC.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 The Real Party in Interest, Su Eur Huang ("Huang") h
ad gone before the TPC on 13 December 1988 to request a zoning change of Lot Nos. 2152-F-5-Rl, 5173-REM-PART and 5174-D, Block 1, Tract 7 from R-1 to R-2.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
The Governor eventually approved the zoning change request on 7 February 1995.}{\insrsid8588550 
\par }{\insrsid1328672\charrsid8416878 
\par }{\b\insrsid8588550\charrsid8416878 [3]}{\insrsid8588550\charrsid8416878 \tab The lower court he
ld a hearing on the writ on 10 and 11 October 1996, and as noted, issued a ruling denying the injunctive relief sought, finding no abuse of discretion by the TLUC, the Department of Land Management or Gil Shinohara.}{\insrsid8416878  }{
\insrsid8588550\charrsid8416878 However, after determining that the respondents had not abused their discretion, the court then went further and ordered:}{\insrsid1328672 
\par 
\par }{\insrsid8588550\charrsid8416878 1)\tab that Respondent TLUC shall promulgate and implement the following rules:}{\insrsid8588550 
\par }{\insrsid1328672\charrsid8416878 
\par {\pntext\pard\plain\s16 \insrsid8588550\charrsid8416878 \hich\af0\dbch\af0\loch\f0 a)\tab}}\pard\plain \s16\qj \fi-720\li1440\ri720\nowidctlpar\tx-1440\jclisttab\tx1440{\*\pn \pnlvlbody\ilvl0\ls1\pnrnot0\pnlcltr\pnstart1\pnindent360\pnsp120 {\pntxta )}}
\faauto\ls1\rin720\lin1440\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 establishing an appeal period of thirty (30) days for any party aggrieved by the decisions of 
the Commission on any zone change application, to the Superior Court of Guam, similar to what is set forth in the Administrative Adjudication Act, 5 GCA }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  9241; the thirty (30) day period is to be counted from the date the zone change approval is submitted to the Legislature;
\par }\pard\plain \qj \li0\ri0\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin0\lin0\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 
\par }\pard \qj \fi-720\li1440\ri1440\nowidctlpar\tx-1440{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin1440\lin1440\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 b)\tab 
limiting the frequency of zone change applications and setting standards providing that a subsequent application may not be filed without a showing of a change of circumstances or condition warranting a re-application;}{\insrsid8588550 
\par }\pard \qj \li0\ri1440\nowidctlpar\tx-1440{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin1440\lin0\itap0\pararsid1328672 {\insrsid1328672\charrsid8416878 
\par {\pntext\pard\plain\s16 \insrsid8588550\charrsid8416878 \hich\af0\dbch\af0\loch\f0 c)\tab}}\pard\plain \s16\qj \fi-720\li1440\ri720\nowidctlpar\tx-1440\jclisttab\tx1440{\*\pn \pnlvlbody\ilvl0\ls2\pnrnot0\pnlcltr\pnstart3\pnindent360\pnsp120 {\pntxta )}}
\faauto\ls2\rin720\lin1440\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 
mandating that upon request, adjoining landowners and other interested parties are entitled to notice of each stage of the zone change process including when it has been acted upo
n by the TLUC and transmitted to the Governor; when it is transmitted to the Legislature, and when it is acted upon 
\par }\pard\plain \qj \fi720\li720\ri720\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin720\lin720\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 by the Legislature;
\par }\pard \qj \li0\ri0\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 
\par }\pard \qj \fi-720\li1440\ri1440\nowidctlpar\tx-1440{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin1440\lin1440\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 d)\tab 
adopting the guidelines set forth in the Administrative Adjudication Act, particularly the rules relating to:
\par }\pard \qj \li0\ri0\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 
\par }\pard\plain \s17\qj \fi-720\li2160\ri0\nowidctlpar\tx-1440{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin0\lin2160\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\field\flddirty{\*\fldinst {
\insrsid8588550\charrsid8416878 SEQ i.,_ii.,_iii., \\* roman \\r 1}}{\fldrslt {\insrsid8588550\charrsid8416878 i}}}{\insrsid8588550\charrsid8416878 )\tab 
the recording of public hearings including the testimony and evidence submitted, objections presented, appearances therein,
\par }\pard\plain \qj \li0\ri0\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin0\lin0\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 
\par }\pard \qj \li1440\ri1440\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin1440\lin1440\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 ii)\tab the preservation of the records of the Commission;
\par }\pard \qj \li0\ri0\nowidctlpar{\*\pn \pnlvlcont\ilvl0\ls0\pnrnot0\pndec }\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 
\par {\pntext\pard\plain\s16 \insrsid8588550\charrsid8416878 \hich\af0\dbch\af0\loch\f0 e)\tab}}\pard\plain \s16\qj \fi-720\li1440\ri720\nowidctlpar\tx-1440\jclisttab\tx1440{\*\pn \pnlvlbody\ilvl0\ls3\pnrnot0\pnlcltr\pnstart5\pnindent360\pnsp120 {\pntxta )}}
\faauto\ls3\rin720\lin1440\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 adopting a rule limiting the time tha
t the Governor has to act upon a zone change before it is deemed automatically denied.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
Prior to adopting such a rule, the TLUC shall conduct public hearings pursuant to the Administrative Adjudication Act, to solicit comments and suggestions of an appropriate time period;
\par }\pard\plain \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 
\par }\pard \qj \fi-720\li1440\ri720\nowidctlpar\tx-1440\faauto\rin720\lin1440\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 f)\tab 
a sunset provision, a notice requirement for alteration, changes or revisions of a zone change application; and that the TLUC consider contract zoning.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 
\par {\pntext\pard\plain\s18 \insrsid8588550\charrsid8416878 \hich\af0\dbch\af0\loch\f0 2)\tab}}\pard\plain \s18\qj \fi-720\li720\ri0\nowidctlpar\tx-1440\jclisttab\tx720{\*\pn \pnlvlbody\ilvl0\ls4\pnrnot0\pndec\pnstart2\pnindent360\pnsp120 {\pntxta )}}
\faauto\ls4\rin0\lin720\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 that the Office of the Attorney General assist the TLUC in drafting the rules and regulations identified above;
\par }\pard\plain \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid8588550\charrsid8416878 
\par }\pard \qj \fi-720\li720\ri720\nowidctlpar\tx-1440\faauto\rin720\lin720\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 3)\tab 
that the draft rules and regulations be submitted to the Governor and the Legislature at the next legislative session in February 1997, or within 120 days of this judgment, whichever is later.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 
\par }{\b\insrsid8588550\charrsid8416878 [4]}{\insrsid8588550\charrsid8416878 \tab The Judgment was filed on 24 February 1997, and a timely Notice of Appeal was filed by the TLUC on 24 March 1997.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
Although the prayer for relief in the Petition for Writ of Mandate}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 does not seek the
 promulgation of rules and regulations, the record below is clear that the Holmeses requested each of the specific rules and regulations that were ordered by the trial court.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
Further, the Petition for Writ of Mandate}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 details the failure of the TPC to adopt rules for the conduct of public hearings and the absence of procedural rules governing zone changes, and requests, }{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 Such other relief as at law or in equity may be granted, whether or not prayed for herein.}{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 Petition Record}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 at 11.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid1328672 {\b\insrsid8588550\charrsid1328672 II.}{\b\insrsid8588550 
\par }\pard \ql \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid1328672 {\insrsid1328672\charrsid1328672 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\b\insrsid8588550\charrsid8416878 [5]}{\insrsid8588550\charrsid8416878 \tab This court has jurisdiction to hear this appeal pursuant to 7 GCA }{\insrsid8588550\charrsid8416878 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  3107 (1994) and 48 U.S.C. }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f169\fs24}}}{\insrsid8588550\charrsid8416878  1424-3(d)(1987).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 While at times the Ninth Circuit has reviewed the issuance of mandamus applying federal precedent,}{\insrsid8416878  }{
\i\insrsid8588550\charrsid8416878 see}{\insrsid8588550\charrsid8416878  }{\i\insrsid8588550\charrsid8416878 Haeuser v. Department of Law, Government of Guam}{\insrsid8588550\charrsid8416878 , 97 F.3d 1152, 1154 (9}{\super\insrsid8588550\charrsid8416878 th
}{\insrsid8588550\charrsid8416878  Cir. 1996) (citing }{\i\insrsid8588550\charrsid8416878 Davis v. United States}{\insrsid8588550\charrsid8416878 , 961 F.2d 867, 878 (9}{\super\insrsid8588550\charrsid8416878 th}{\insrsid8588550\charrsid8416878 
 Cir. 1992)), the Ninth Circuit has, on another occasion, indicated that California case law interpreting mandamus relief is persuasive.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 See Apusento Garden (Guam), Inc. v. Superior Court of Guam,}{
\insrsid8588550\charrsid8416878  94 F.3d 1346, 1350 (9}{\super\insrsid8588550\charrsid8416878 th}{\insrsid8588550\charrsid8416878  Cir 1996).}{\cs15\super\insrsid8588550\charrsid8416878 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid8588550 \chftn }{\i\fs20\insrsid8588550 Apusento Garden}{\fs20\insrsid8588550  was filed on 6 September 1996. }{
\i\fs20\insrsid8588550  Hauser}{\fs20\insrsid8588550  was filed over a month later on 8 October 1996.}}}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 As we have stated in }{\i\insrsid8588550\charrsid8416878 
Sumitomo Construction Co. v. Zhong Ye, Inc., }{\insrsid8588550\charrsid8416878 1997 Guam 8, }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 6, }{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 [D]ecisions of the federal courts are not controlling upon our construction of the law}{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  (citing }{\i\insrsid8588550\charrsid8416878 People of the Territory of Guam v. Dwayne S. Quenga, }{
\insrsid8588550\charrsid8416878 1997 Guam 6, n.4. [W]hile we will not disturb precedent that is }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 
well supported in law and well reasoned}{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 
, we clearly are within our authority to modify those interpretations previously addressed by federal courts.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Id.}{\i\insrsid8416878  }{\insrsid8588550\charrsid8416878 
In this case, we will use our own independent analysis of the issues before us.}{\insrsid8416878  }{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [6]}{\insrsid8588550\charrsid8416878 \tab This court concurs with the }{\i\insrsid8588550\charrsid8416878 Apusento Garden }{\insrsid8588550\charrsid8416878 court in its finding that since Guam}{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 
s mandamus statutes were adopted from the California Civil Code, California cases applying the mandamus standard are persuasive authority.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Id. }{\insrsid8588550\charrsid8416878 at 1350.}{
\insrsid8416878  }{\insrsid8588550\charrsid8416878 We also find that California cases interpreting California}{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{
\insrsid8588550\charrsid8416878 s mandamus statute are at the very least, instructional.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
A judgment granting mandamus relief is reviewed to determine whether the judgment is supported by substantial evidence.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Saathoff v. City of San Diego, }{\insrsid8588550\charrsid8416878 
35 Cal. App. 4th 697, 700, 41 Cal. Rptr.2d 352, 354 (Cal. Ct. App. 1995).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 However, if the facts underlying the judgment are not in dispute, this court may arrive at its own legal conclusions.}{
\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Id.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 In the present appeal, the relevant facts are not in dispute, and this court will review the trial court}{\insrsid8588550\charrsid8416878 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 s issuance of mandamus }{\i\insrsid8588550\charrsid8416878 de novo}{\insrsid8588550\charrsid8416878 . }{\insrsid1328672 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid1328672 {\b\insrsid8588550\charrsid1328672 III.}{\b\insrsid1328672\charrsid1328672 
\par }\pard \qj \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid1328672 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\b\insrsid8588550\charrsid8416878 [7]}{\insrsid8588550\charrsid8416878 \tab Respondent-Appellant TLUC,}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
the only party to this Appeal, contends that the trial court erred in ordering the promulgation of specific rules and regulations relating to zoning changes.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
The Appellant asserts that the Petition for a Writ of Mandate should have been dismissed for failure to exhaust the administrative remedies available to the Holmeses through the Administrative Adjudication Act, which provides a proce
dure by which a person may petition the agency to promulgate, amend or repeal an administrative rule.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
The TLUC argues that the Petitioners failed to exhaust this remedy to make the proposed changes to the zoning rules and regulations.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 We address this as a 
threshold issue in determining whether the trial court properly granted mandamus.}{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [8]}{\insrsid8588550\charrsid8416878 \tab The Administrative Adjudication Law}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 (}{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 AAL}{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 
), 5 GCA Chapter 9, provides a uniform system of rule making procedures for all government of Guam agencies and departments.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 As stated in its }{\b\insrsid8588550\charrsid8416878 Legislative Intent}{
\insrsid8588550\charrsid8416878 :}{\insrsid1328672 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid8416878 {\insrsid8588550\charrsid8416878 It is the intent of the Legislature to establish a uniform method of making, adopting, promulgating, filing and publishing rules by al
l agencies of this Territory, to permit public participation therein and provide a method of making rules readily accessible to the public.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
It is not intended to give to any agency any additional rule-making power or authority and no additional or new power or authority to make or adopt rules is given to any agency by this law.}{\insrsid1328672 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\insrsid1328672 
\par }{\insrsid8588550\charrsid8416878 5 GCA }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  9300 (1994).}{\insrsid8416878  }{
\insrsid8588550\charrsid8416878 The AAL provides detailed and specific procedures for the adoption, repeal, recission or amendments of rules.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 See }{\insrsid8588550\charrsid8416878 5 GCA }{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  9301- 9303.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
Such procedures involve petitioning the agency for the adoption of rules, notice to the public, a public hearing, approval by the Attorney General, approval by the Governor where required by law, and finally, adoption or approval by}{\insrsid8416878  }{
\insrsid8588550\charrsid8416878 the Legislature. In this case, there is no indication in the record that the Holmeses availed themselves of this remedy.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
There are simply requests by the Holmeses for the court to order the promulgation of specific rules and regulations. }{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [9]}{\insrsid8588550\charrsid8416878 \tab Mandamus will not be granted where the petitioner has failed to pursue the administrative remedies available to him.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 
Chamorro Employees Labor Union (CHELU)}{\i\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 v. Calvo, }{\insrsid8588550\charrsid8416878 2 Guam R. 30, 31 (1980).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
When an administrative remedy has been provided by statute, this remedy must be exhausted before the courts will act.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Aguirre v. Lee, }{\insrsid8588550\charrsid8416878 
20 Cal.App.4th, 1646, 1654, 25 Cal. Rptr.2d 367, 371 (Cal. Ct. App. 1993).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 Because mandamus is an extraordinary remedy is
sued only when there is not a plain, speedy, and adequate remedy in the ordinary course of law, 7 GCA }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 
 31203 (1993), and because the Holmeses did not avail themselves of this remedy, this court finds that mandamus was improperly granted.}{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [10]}{\insrsid8588550\charrsid8416878 \tab 
The Appellant further asserts that the promulgation of such rules is not a ministerial act, and therefore the TLUC does not have a duty to promulgate such rules and regulations.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
The TLUC argues that the writ violates the separation of powers doctrine by allowing the judiciary to step into the legislative arena by ordering the TLUC to exercise its discretion by promulgating specific rules.}{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [11]}{\insrsid8588550\charrsid8416878 \tab A writ of mandate may be issued to compel the performance of an act which the law specially enjoins. 7 GCA }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  31202 (1993).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
As stated above, mandamus is a extraordinary remedy issued only when there is not a plain, speedy, and adequate remedy in the ordinary course of law.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 7 GCA }{\insrsid8588550\charrsid8416878 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  31203;}{\i\insrsid8588550\charrsid8416878  see also Apusento Garden,}{\insrsid8588550\charrsid8416878  94 F.3d at 1346, }{
\i\insrsid8588550\charrsid8416878 Guam Publications v. Superior Court v. People, }{\insrsid8588550\charrsid8416878 1996 Guam 6 }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{
\insrsid8588550\charrsid8416878  10.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 It is ordered where the respondent has a clear, present and ministe
rial duty to act, and the petitioner has a clear, present and beneficial right to performance of that duty.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 See State Board of Education v.}{\insrsid8588550\charrsid8416878  }{
\i\insrsid8588550\charrsid8416878 Honig, }{\insrsid8588550\charrsid8416878 13 Cal.App.4th 720, 741, 16 Cal. Rptr.2d 727, 741 (Cal. Ct. App. 1993).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 When mandamus is sought against a gov
ernmental body, the court must determine whether the act involves}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 the exercise of discretion or a ministerial duty.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 United Ass}{
\i\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\i\insrsid8588550\charrsid8416878 n. of Journeymen v. City and County of San Francisco}{\insrsid8588550\charrsid8416878 
, 32 Cal. App. 4}{\super\insrsid8588550\charrsid8416878 th}{\insrsid8588550\charrsid8416878  751, 759, 38 Cal. Rptr.2d 280, 284 (Cal. Ct. App. 1995).}{\insrsid8416878  }{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [12]}{\insrsid8588550\charrsid8416878 \tab Mandamus may not ordinarily issue to command a body to exercise its discretion in a particular manner.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Id.;}{
\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 Saathoff}{\insrsid8588550\charrsid8416878 , 35 Cal.App. 4th at 702, 41 Cal. Rptr.2d at 355}{\i\insrsid8588550\charrsid8416878 ; Sklar v. Franchise Tax Board}{\insrsid8588550\charrsid8416878 
, 185 Cal.App.3d 616, 624, 230 Cal. Rptr. 42, 48 (Cal. Ct. App. 1986). To compel a discretionary action could violate the separation of powers doctrine this Court strives to uphold.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 See}{
\insrsid8588550\charrsid8416878  }{\i\insrsid8588550\charrsid8416878 Taisipic v. Marion}{\insrsid8588550\charrsid8416878 , 1996 Guam 9.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 Nonetheless, where the exercise of di
scretion, or the failure to exercise such discretion is so fraudulent, arbitrary, or palpably unreasonable that it constitutes an abuse of discretion as a matter of law, mandamus may issue.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 United Ass}
{\i\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\i\insrsid8588550\charrsid8416878 n. of Journeymen}{\insrsid8588550\charrsid8416878 , 32 Cal.App.4th at 768, 38 Cal. Rptr.2d at 290; 
}{\i\insrsid8588550\charrsid8416878 see also Sklar}{\insrsid8588550\charrsid8416878 , 185 Cal.App.3d at 625, 230 Cal. Rptr. at 49. This abuse of discretion standard is highly deferential.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 United Ass}{
\i\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\i\insrsid8588550\charrsid8416878 n. of Journeymen}{\insrsid8588550\charrsid8416878 , 32 Cal.App.4th at 768, 38 Cal. Rptr.2d at 290.}{
\insrsid8416878  }{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [13]}{\insrsid8588550\charrsid8416878 \tab In }{\i\insrsid8588550\charrsid8416878 Sklar,}{\insrsid8588550\charrsid8416878 
 the California appellate court conceded that the tax board had a mandatory duty to prescribe rules and regulations, but that it was not an abuse of discretion for the tax board to fail to enact the specific rules and regulations sought by the Petitioner.
}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 185 Cal.App. 3d at 626, 230 Cal. Rptr. at 49-50.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 We cannot say that the TLUC}{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 s failure to implement the specific rules and regulations ordered by the trial court rose to a decision which was }{\insrsid8588550\charrsid8416878 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 fraudulent, or so palpably unreasonable and arbitrary as to indicate an abuse of discretion as a matter of law.}{\insrsid8588550\charrsid8416878 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 United Ass}{\i\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f169\fs24}}}{\i\insrsid8588550\charrsid8416878 n. of Journeymen, }{\insrsid8588550\charrsid8416878 32 Cal.App.4th at 768, 38 Cal. Rptr.2d at 290.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 Moreover, the language of 21 GCA }{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878  60405 (1995)}{\cs15\super\insrsid8588550\charrsid8416878 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid8588550 \chftn }{\fs20\insrsid8588550 21 GCA }{\fs20\insrsid8588550 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f169\fs20}}}{\fs20\insrsid8588550  60405 states: }{\b\fs20\insrsid8588550 Same: Rules. }{\fs20\insrsid8588550 
 The Commission is authorized to make reasonable rules, not inconsistent with the provisions of this Chapter for the conduct of its business.}}}{\insrsid8588550\charrsid8416878  does not require the TLUC to promulgate rules and regulations.}{
\insrsid8416878  }{\insrsid8588550\charrsid8416878 Such language is discretionary rather than mandatory.}{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [14]}{\insrsid8588550\charrsid8416878 \tab 
In the instant case, we believe that the trial court erred by ordering the TLUC to promulgate the specific rules identified in the Judgment, after determining that the TLUC had not abused its discretion in granting the zone application.}{\insrsid8416878  
}{\insrsid8588550\charrsid8416878 As noted above, when mandamus is sought against a governmental body, the court must first decide if the questioned act is discretionary or ministerial.}{\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 United Ass}{
\i\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\i\insrsid8588550\charrsid8416878 n of Journeymen, }{\insrsid8588550\charrsid8416878 32 Cal.App.4th at 759, 38 Cal. Rptr.2d at 284.}{
\insrsid8416878  }{\insrsid8588550\charrsid8416878 Herein, the trial court made a finding that the TLUC had not abused its discretionary power.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
It therefore found by implication that the act involved in the granting of the zone application was discretionary.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 That finding of non-abuse should have concluded the court}{
\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 s inquiry.}{\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [15]}{\insrsid8588550\charrsid8416878 \tab The court}{\insrsid8588550\charrsid8416878 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f169\fs24}}}{\insrsid8588550\charrsid8416878 
s further order for the promulgation of specific rules it had formulated exceeds its authority.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 The promulgation of particular rules and regulations is clearly an exercise of legislative discretion.}{
\insrsid8416878  }{\i\insrsid8588550\charrsid8416878 See Sklar, }{\insrsid8588550\charrsid8416878 185 Cal.App.3d at 623, 230 Cal. Rptr. at 47; }{\i\insrsid8588550\charrsid8416878 Tailfeather v. Board of Supervisors of Los Angeles County,}{
\insrsid8588550\charrsid8416878  48 Cal.App.4th 1223, 1238, 56 Cal. Rptr.2d 255, 268 (Cal. Ct. App. 1996).}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 
It is one thing for a court to order the promulgation of rules and regulations required by statute; it is an entirely different thing for a court to create and then order the adoption of specific rules and specific regulations.}{\insrsid8416878  }{
\insrsid1328672 
\par 
\par }{\b\insrsid8588550\charrsid8416878 [16]}{\insrsid8588550\charrsid8416878 \tab 
We conclude, therefore, that the trial judge erred in ordering the TLUC to promulgate specific rules including zone change provisions, a sunset provision, an appeals period and procedure, contract zoning requirement and other miscellaneous rules.}{
\insrsid8416878  }{\insrsid8588550\charrsid8416878 These are policy decisions which are best left to the discretion of the legislature or its designee, the TLUC.}{\insrsid1328672 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\b\insrsid8588550\charrsid1328672 IV.}{\b\insrsid1328672\charrsid1328672 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid1328672 {\insrsid1328672 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid8416878 {\b\insrsid8588550\charrsid8416878 [17]}{\insrsid8588550\charrsid8416878 \tab 
The trial court improperly granted mandamus: first, because Petitioners-Appellees have failed to avail themselves of administrativ
e remedies prior to bringing the writ of mandate; and second, in the absence of a finding of an abuse of discretion as a matter of law, a trial court cannot compel an administrative body to promulgate specific rules and regulations left to the discretion 
of that body.}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 The judgment below, as it pertains to the promulgation of specific rules and regulations by the TLUC,}{\insrsid8416878  }{\insrsid8588550\charrsid8416878 is hereby REVERSED.}{
\insrsid8416878 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid1328672 {\insrsid8588550\charrsid8416878 EDUARDO A. CALVO, Associate Justice\tab \tab JANET HEALY WEEKS, Associate Justice}{\insrsid8416878 
\par }\pard \qj \fi-5040\li5040\ri0\nowidctlpar\tx-1440\faauto\rin0\lin5040\itap0\pararsid8416878 {\insrsid8416878 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid1328672 {\insrsid8588550\charrsid8416878 PETER C. SIGUENZA, Chief Justice
\par }}