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Ada v. Guam Telephone Authority, et al.}{\fs20\insrsid15957311 , 1999 Guam 10, Opinion\tab Page }{\field{\*\fldinst {\fs20\insrsid15957311 PAGE }}{\fldrslt {\fs20\lang1024\langfe1024\noproof\insrsid205364 8}}}{\fs20\insrsid15957311  of 11
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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid15957311\charrsid400646 IN THE SUPREME COURT OF GUAM}{\b\insrsid400646 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 THOMAS C. ADA, Senator
\par }{\insrsid15957311\charrsid400646 Plaintiff-Appellant
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 GUAM TELEPHONE AUTHORITY, PAUL D. UNTALAN,
\par LESLIE D. MORENO, PEDRO R. MARTINEZ,
\par EDWARD L.G. AGUON, NORA P. HITOSIS, RENA B.
\par WANG, and ROMAN L. CEPEDA, personally and in
\par their capacities as members of the Guam Telephone
\par Authority Board of Directors, and VICENTE M.
\par CAMACHO, personally and in his capacity as the
\par Guam Telephone Authority General Manager,}{\insrsid15957311\charrsid400646 
\par Defendants-Appellees
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid15957311\charrsid400646 Supreme Court Case No. CVA98-012
\par Superior Court Case No. SP0265-96
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid15957311\charrsid400646 Filed: 30 April 1999
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 Cite as:}{\b\insrsid400646  }{\b\insrsid15957311\charrsid400646 1999 Guam 10
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid15957311\charrsid400646 Appeal from the Superior Court of Guam 
\par Argued and submitted on 29 January, 1999
\par Hag\'e5t\'f1a, Guam}{\insrsid400646 
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\par Appearing for Plaintiff-Appellant:
\par Michael F. Phillips, Esquire
\par Phillips & Bordallo, P.C.
\par 410 West O}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 Brien Drive
\par Hag\'e5t\'f1a, Guam 96910\cell 
\par Appearing for Defendants-Appellees:
\par Frederick J. Horecky, Esquire
\par Law Offices of Horecky & Associates
\par 1}{\super\insrsid15957311\charrsid400646 st}{\insrsid15957311\charrsid400646  Floor, J. Perez Building
\par 138 Seaton Boulevard
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\par }{\insrsid15957311\charrsid400646 BEFORE: PETER C. SIGUENZA, Chief Justice}{\cs15\super\insrsid15957311\charrsid400646 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15957311 \chftn }{\fs20\insrsid15957311 The signatures in this opinion reflect the titles of the justices at the time this matter was considered and determined.}}}{
\insrsid15957311\charrsid400646 , JANET HEALY WEEKS and BENJAMIN J.F. CRUZ, Associate Justices.}{\insrsid400646 
\par 
\par }{\b\insrsid15957311\charrsid205364 SIGUENZA, C.J.:
\par }{\b\insrsid205364 
\par }{\b\insrsid15957311\charrsid400646 [1]}{\insrsid15957311\charrsid400646 \tab This is an appeal of the Superior Court}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{
\insrsid15957311\charrsid400646 s decision and order dismissing the Plaintiff}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s complaint on the pleadings. The court below ruled that the Plaintiff had standing to prosecute the instant action. Further, the court found that the Guam Telephone Authority, an autonomous agency of the government of Guam, had acted within its statuto
ry authority to procure Federal Communications Commission (FCC) licenses for Personal Communications Services (PCS) in Guam and the Commonwealth of the Northern Marianas (CNMI). We agree that the procurement of FCC licenses is within the statutory authori
ty of the Guam Telephone Authority. We therefore AFFIRM the Superior Court}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s decision.
\par }{\b\insrsid15957311\charrsid400646 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid205364 {\b\insrsid15957311\charrsid400646 BACKGROUND}{\insrsid205364 
\par }\pard \ql \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid205364 {\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 [2]}{\insrsid15957311\charrsid400646 \tab The underlying facts are not disputed.}{\insrsid400646  }{\insrsid15957311\charrsid400646 
Plaintiff-Appellant, Thomas C. Ada, a Senator of the Twenty-Third Guam
 Legislature, had filed suit on October 2, 1996. Appellant claimed that the Guam Telephone Authority (GTA) did not have the authority to participate in a bidding process with the FCC to obtain licenses to provide and operate PCS}{
\cs15\super\insrsid15957311\charrsid400646 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15957311 \chftn }{\fs20\insrsid15957311 
PCS, established by the FC
C, is a wireless telecommunications service that combines features of cellular telephones with advanced digital technologies. PCS licenses are in the 1900 MHZ band.  The FCC has divided the available spectrum for PCS into six blocks: A, B, C, D, E, and F.
  The licenses are restricted to Major trading Areas (for blocks A, B, and C) and Basic Trading Areas (for blocks D, E, and F).  Since August 26, 1996, GTA placed bids in the FCC auction to provide PCS in the D, E, and F frequency blocks to the CNMI.}}}{
\insrsid15957311\charrsid400646  in Guam and the CNMI.}{\insrsid400646  }{\insrsid15957311\charrsid400646 He further alleged that the agency}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f172\fs24}}}{\insrsid15957311\charrsid400646 s use of public funds in the procurement of the license, without prior legislative approval, was in contravention of law. Appellant named GTA, it}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s Board of Directors and General Manager,}{\insrsid400646  }{\insrsid15957311\charrsid400646 personally and in their respective official capacities,}{
\insrsid400646  }{\insrsid15957311\charrsid400646 as defendants.}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [3]}{\insrsid15957311\charrsid400646 \tab The suit asked for the following relief: (1) a declaratory judgment that GTA does not have the authority to open and operate a PCS business in the CNMI; (2)}{\insrsid400646  }{
\insrsid15957311\charrsid400646 a permanent injunction enjoining GTA from taking further action towards operation of PCS in the CNMI; (3) that GTA return all public monies improperly spent toward securing the licenses and permits and other 
expenses associated with establishing a PCS business in the CNMI; and (4) attorney}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s fees and costs.}{
\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [4]}{\insrsid15957311\charrsid400646 \tab On October 4, 1996, GTA removed the action to the District Court of Guam and on October 9, 1996, filed a mo
tion to dismiss or stay proceedings pending referral to the FCC. Appellant filed a motion to remand on October 22, 1996. By order issued on January 13, 1997, the District Court granted Appellant}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s motion, while denying GTA}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{
\insrsid15957311\charrsid400646 s motion to dismiss or stay proceedings and Appellant}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s request for attorney}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s fees and costs. That court found the following: (1) that Appellant}{
\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s causes of action do not arise under federal law; (2) that the defense of preemption may not form the basis for removal; and (3) that the action did not fall within the extraordinary complete preemption exception.}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [5]}{\insrsid15957311\charrsid400646 \tab 
On March 18, 1997, GTA filed a motion to dismiss in the Superior Court of Guam, pursuant to Rule 12(b)(6) of the Guam Rules of Civil Procedure. GTA alleged that Appellant lacked standing as a senator to sue for enforcement of the law.}{\insrsid400646  }{
\insrsid15957311\charrsid400646 Further, GTA filed a motion to dismiss or to stay proceedings pending referral to the FCC under the Doctrine of Primary Jurisdiction.}{\insrsid400646  }{\insrsid15957311\charrsid400646 
The parties filed their respective responses. The lower court heard argument on the matter on June 26, 1997, and took the case under advisement. By that date, however, the FCC awarded GTA a license to operate a PCS system in Guam and the CNMI.}{
\insrsid400646  }{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [6]}{\insrsid15957311\charrsid400646 \tab The tri
al court rendered its decision and order on January 30, 1998. The court ruled that Appellant had no standing to prosecute the suit as a legislator; however, it found that he did have standing, as a taxpayer,}{\insrsid400646  }{
\insrsid15957311\charrsid400646 to bring the action. With reference to the motion to dismiss or to stay, the court found no need to rule on the preemption issue.}{\insrsid400646  }{\insrsid15957311\charrsid400646 
It reasoned that the FCC had seen fit not only to entertain GTA}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s bid for a PCS license, but to grant it. The court further observed the preemption mandate of the Telecommunications Act of 1996 was not implicated because there was no statute or regulation to preempt.}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [7]}{\insrsid15957311\charrsid400646 \tab Finally, the lower court found, as a matter of law, GTA had acted within its statutory authority in taking measure
s to procure the FCC licenses and the permits needed to serve Guam PCS customers travelling to the CNMI.}{\insrsid400646  }{\insrsid15957311\charrsid400646 The court reasoned that GTA}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s enabling statute conferred broad powers to GTA so that it may provide telepho
ne services to individuals, firms, corporations and the government of Guam. It noted that while there are certain restrictions placed on the manner in which GTA operates, there were no geographical limitations on its area of service nor was there any limi
tation on the type of telephone service to be provided.}{\insrsid400646  }{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [8]}{\insrsid15957311\charrsid400646 \tab It further found that nothing in the plain language of the statute, 12 GCA }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646  7104, read together with 1 GCA }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}{\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
 400 and 401, spoke to the authority of GTA to provide for PCS service to its customers while they are in the CNMI. It held the latter two provisions were fundamental declarations of Guam}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s political authority and not statements restricting the geographical operations of autonomous agencies acting within their statutory mandate.}{\insrsid400646  }{
\insrsid15957311\charrsid400646 Finally, the court ruled that in any PCS operations in the CNMI, GTA would be acting as a provider of commercial mobile services and only incident}{\insrsid205364 al}{\insrsid15957311\charrsid400646 
ly as an instrumentality of the government of Guam. Thus, the court ordered judgment for GTA on the pleadings.}{\insrsid205364 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid205364 {\b\insrsid15957311\charrsid400646 STANDARD OF REVIEW}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 [9]}{\insrsid15957311\charrsid400646 \tab This court has jurisdiction pursuant to 7 GCA }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL
 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
 3107 and 3108 (1994). Dismissals pursuant to Guam Rule of Civil Procedure 12(c)}{\insrsid400646  }{\insrsid15957311\charrsid400646 are reviewed }{\i\insrsid15957311\charrsid400646 de novo}{\insrsid15957311\charrsid400646 . }{
\i\insrsid15957311\charrsid400646 Marx v. Loral Corp}{\insrsid15957311\charrsid400646 ., 87 F.3d 1049, 1053 (9}{\super\insrsid15957311\charrsid400646 th}{\insrsid15957311\charrsid400646  Cir. 1996); }{\i\insrsid15957311\charrsid400646 
Merchants Home Delivery Serv. Inc. v. Hall & Co.}{\insrsid15957311\charrsid400646 , 50 F.3d 1486, 1488 (9}{\super\insrsid15957311\charrsid400646 th}{\insrsid15957311\charrsid400646  Cir. 1995); }{\i\insrsid15957311\charrsid400646 
Westlands Water Dist. v. Firebaugh Canal}{\insrsid15957311\charrsid400646 , 10 F.3d 667, 670 (9}{\super\insrsid15957311\charrsid400646 th}{\insrsid15957311\charrsid400646  Cir. 1993). A }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 [j]udgment on the pleadings is properly granted when, taking all the allegations in the pleading as true, the moving party is entitled to judgment as a matter of law.}{
\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\i\insrsid15957311\charrsid400646  Merchants Home Delivery}{\insrsid15957311\charrsid400646 , 50 F.3d at 1488. }{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [10]}{\insrsid15957311\charrsid400646 \tab Issues of statutory interpretation are reviewed }{\i\insrsid15957311\charrsid400646 de novo}{\insrsid15957311\charrsid400646 . }{\i\insrsid15957311\charrsid400646 
People v. Quichocho}{\insrsid15957311\charrsid400646 , 1997 Guam 13, }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646  3. In addition, an agency}{
\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s interpretation of a statute is a question of law reviewed }{\i\insrsid15957311\charrsid400646 de novo}
{\insrsid15957311\charrsid400646 . }{\i\insrsid15957311\charrsid400646 Conlon v. United States Dep}{\i\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\i\insrsid15957311\charrsid400646 
t of Labor}{\insrsid15957311\charrsid400646 , 76 F.3d 271, 274 (9}{\super\insrsid15957311\charrsid400646 th}{\insrsid15957311\charrsid400646  Cir. 1996). In reviewing an agency}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s construction of a statute, the court must reject those constructions that are contrary to clear congressi
onal intent or frustrate the policy that Congress sought to implement. }{\i\insrsid15957311\charrsid400646 Chevron, U.S.A., Inc. v. Natural Resources Defense Council, Inc}{\insrsid15957311\charrsid400646 
., 467 U.S. 837, 843 n. 9, 104 S.Ct. 2778, 2781 (1984); }{\i\insrsid15957311\charrsid400646 Trustees of the Cal. State Univ. v. Riley}{\insrsid15957311\charrsid400646 , 74 F. 3d 960, 963 (9}{\super\insrsid15957311\charrsid400646 th}{
\insrsid15957311\charrsid400646  Cir. 1996); }{\i\insrsid15957311\charrsid400646 Citizens for Clean Air v. EPA}{\insrsid15957311\charrsid400646 , 959 F. 2d 839, 844 (9}{\super\insrsid15957311\charrsid400646 th}{\insrsid15957311\charrsid400646 
 Cir. 1992). If a statute is silent or ambiguous on a particular point, however, the court may defer to the agency}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{
\insrsid15957311\charrsid400646 s interpretation. }{\i\insrsid15957311\charrsid400646 Chevron}{\insrsid15957311\charrsid400646 , 467 U.S. at 843, 104 S.Ct. at 2782; }{\i\insrsid15957311\charrsid400646 Citizens for Clean Air}{
\insrsid15957311\charrsid400646 , 959 F. 2d at 844. Review is limited to }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 whether the agency}{
\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s conclusion is based on a permissible construction of the statute.}{\insrsid15957311\charrsid400646 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646  }{\i\insrsid15957311\charrsid400646 Chevron}{\insrsid15957311\charrsid400646 , 467 U.S. at 843, 104 S.Ct. at 2782.}{\insrsid205364 

\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid205364 {\b\insrsid15957311\charrsid400646 DISCUSSION}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 [11]}{\insrsid15957311\charrsid400646 \tab 
The court is of the opinion that, at its irreducible minimum, the instant case turns on the issue of whether GTA had the authority to engage in the bidding process for the acquisition of the PCS licenses from the FCC.}{
\cs15\super\insrsid15957311\charrsid400646 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15957311 \chftn }{\fs20\insrsid15957311 
Our disposition of the issue further obviates the need to address the issues of GTA}{\fs20\insrsid15957311 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f172\fs20}}}{\fs20\insrsid15957311 
s expenditures for procurement of the license and of preemption raised by Appellees.}}}{\insrsid400646  }{\insrsid15957311\charrsid400646 As has been observed:}{\insrsid205364 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid400646 {\insrsid15957311\charrsid400646 Administrative agencies and their executive officers are 
creatures of statute and delegates of the Legislature. Their power is dependent upon statutes, so that they must find within the statute warrant for the exercise of any authority which they claim. They have no general or common-law powers but only such as
 have been conferred upon them by law expressly or by implication.}{\insrsid205364 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid205364 {\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\i\insrsid15957311\charrsid400646 Francis O. Day Co., Inc. v. The West Virginia Reclamation Board of Review}{\insrsid15957311\charrsid400646 
, 424 S.E. 2d 763, 766-766 (W.Va. 1992)(citations omitted); }{\i\insrsid15957311\charrsid400646 Ayala v. Hill}{\insrsid15957311\charrsid400646 , 664 P. 2d 238, 241 (Ariz. Ct. App. 1983).}{\insrsid400646  }{\insrsid15957311\charrsid400646 
The statutory provisions with respect to the Guam Telephone Authority are found in Chapter 7 of Title 12 of the Guam Code Annotated. }{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [12]}{\insrsid15957311\charrsid400646 \tab The powers that GTA shall have and exercise are enumerated in 12 GCA }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f172\fs24}}}{\insrsid15957311\charrsid400646  7104 and provide as follows:}{\insrsid205364 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid400646 {\insrsid15957311\charrsid400646 The Authority shall have and exercise each and all of the following powers:}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 
(a) To install, maintain, sell and supply to individuals, firms, corporations and governments, including the government of Guam, telephone services;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (
b) Acquire, subject to the laws of the territory of Guam, by grant, purchase, gift, devise or lease, or by the exercise of the right of eminent domain in accordance with the provisions and subject to the limitations of Title V of Part III of the Code of C
ivil Procedure of Guam, and hold and use any real or personal property necessary or convenient or useful for the carrying on of any of its powers pursuant to the provisions of this Article. The provisions of Title VII\_
A of the Government Code shall be applicable to the Authority except when requirements of federal law or federal loans with respect to the expenditure of federal funds are inconsistent with the provisions of Title VII\_
A of this Code and under such conditions federal law or federal requirements shall control;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (c) Establish its internal organization and management and adopt regulations for the administration of its operations;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (d) Establish and modify from time to time, with approval of the Public Utility Commission, reasonable rates and charges
 for the telephone service, at least adequate to cover the full cost of such service, including the cost of debt service and collect money from customers using such service, all subject to any contractual obligations of the Board to the holders of any bon
ds, pursuant to any such contractual obligation;}{\insrsid400646  }{\insrsid15957311\charrsid400646 and refund charges collected in error.}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 
(e) Enter into contracts and execute all instruments necessary or convenient in the exercise of its powers, adopt a seal, and sue or be sued in its own corporate name;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 
(f) Construct works along or across any street or public highway or watercourse, or over any of the lands which are the property of the Territory;}{\insrsid400646  }{\insrsid15957311\charrsid400646 
and with respect to federal lands, the Authority shall have the same powers with respect to the construction
 of such works as possessed by the government of Guam. The Authority shall restore any such street or highway to its former state as near as may be, and shall not use it in a manner to impair unnecessarily its usefulness;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (g) At any time or from time to time, incur indebtedness pursuant to Article 2 of this Chapter;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (h) Enter into contracts with government of the Territory, with the United States or with a reputable institution for loans or grants;}{
\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (i) Employ, retain or contract for the services of quali
fied managers, specialists or experts, as individuals or as organizations, to advise and assist its Board of Directors and employees;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 (j) Adopt such rules and regulations as may be necessary for the exercise of the powers and performance of the duties con
ferred or imposed upon the Authority or the Board by this Article;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid205364 {\insrsid15957311\charrsid400646 
(k) Control, operate, improve, equip, maintain, repair, renew, replace, reconstruct, alter and insure the telephone system subject to compliance with any applicable regulations of the territory of Guam;}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid400646 {\insrsid15957311\charrsid400646 (l) Do any and all other things necessary to the full and convenient exercise of the above powers.}{\insrsid205364 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid205364 {\insrsid205364 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid205364 {\insrsid15957311\charrsid400646 Nothing contained in this Section or elsewhere in this Article shall be construed directly or by implication to be in any way in derogation 
or limitation of powers conferred upon or existing in the Authority or the Board by virtue of any provisions of the Organic Act of Guam or statutes of the Territory or any ot}{\insrsid205364 her provisions of this Chapter.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }{\insrsid15957311\charrsid400646 12 GCA }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646  7104 (1993).}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [13]}{\insrsid15957311\charrsid400646 \tab We find that a plain reading of subsection (a) provides that GTA has the authority to }{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 install, sell and supply to individuals, firms, corporations and governments, including the government of Guam, telephone services.}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646  }{\i\insrsid15957311\charrsid400646 Id}{\insrsid15957311\charrsid400646 .}{\insrsid400646  }{\insrsid15957311\charrsid400646 
PCS is a wireless telecommunications service that combines features of cellular telephones with advanced digital technologies. It is not unexpected that a broad grant of authori
ty would be necessary in order for GTA to adapt to and acquire new telecommunications technologies and fulfill its purpose of providing and enhancing these services to its customers.}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [14]}{\insrsid15957311\charrsid400646 \tab Neither party disputes the fact that GTA has the authority to bid for a license and ultimately become a PCS carrier; however, they disagree whether GTA}{
\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s authority permits it to provide these services to the CNMI as well.}{
\cs15\super\insrsid15957311\charrsid400646 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15957311 \chftn }{\fs20\insrsid15957311 
Our understanding of the licenses is that they are issued for discrete bands of the frequency spectrum, irrespective of geographical demarcation. }}}{\insrsid400646  }{\insrsid15957311\charrsid400646 
In our opinion, however, this issue is not ripe for review by this court unless and until GTA engages in the conduct of business outside of the boundaries of Guam.}{\insrsid400646  }{\insrsid15957311\charrsid400646 The U.S. Supreme Court has stated that:}
{\insrsid205364 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid400646 {\insrsid15957311\charrsid400646 
[The] basic rationale [of the ripeness doctrine] is to prevent the courts, through avoidance of premature adjudication, from entangling themselves in abstract d
isagreements over administrative policies, and also to protect the agencies from judicial interference until an administrative decision has been formalized and its effects felt in a concrete way by the challenging parties.}{\insrsid400646  }{
\insrsid15957311\charrsid400646 The problem is best seen in a twofold aspect, requiring us to evaluate both the fitness of the issues for judicial decision and the hardship to the parties of withholding court consideration. }{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }{\i\insrsid15957311\charrsid400646 Abbott Laboratories v. Gardner}{\insrsid15957311\charrsid400646 
, 387 U.S. 136, 148-149, 87 S.Ct. 1507, 1515 (1967). With respect to the first aspect, this court must assess the fitness of the issues for judicial decision by focusing on whether the issues presented are purely legal ones and whether we are presented wi
th final agency action. }{\i\insrsid15957311\charrsid400646 Id}{\insrsid15957311\charrsid400646 . at 149, 87 S.Ct. at 1515-1516. We must then balance these considerations}{\insrsid400646  }{\insrsid15957311\charrsid400646 
against the respective hardships upon the parties. }{\i\insrsid15957311\charrsid400646 Id. }{\insrsid15957311\charrsid400646 at 149, 87 S.Ct. at 1515.}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [15]}{\insrsid15957311\charrsid400646 \tab In this case, the Appellant has attempted to frame the issue as a purely legal one calling for the assessment of whether GTA}{\insrsid15957311\charrsid400646 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s enabling statute allows its participation in business ventures outside the boundaries of Guam. However,}{\insrsid400646  }{
\insrsid15957311\charrsid400646 no decision by GTA to so operate has been made for this court to consider. GTA has not undertaken any steps to actually operate PCS: it has merely acquired the license from the FCC.}{\insrsid400646  }{
\insrsid15957311\charrsid400646 Moreover, rendition of the PCS service in the CNMI is not a foregone conclusion. Alternative options may be pursued by GTA that do not include its provision of services in the CNMI. GTA}{\insrsid15957311\charrsid400646 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s acquisition of the license allows it to enhance its marketability should the privatization of the agency occur, or it may sell the license to another
 provider. Unless and until there is some action by GTA, this issue is not justiciable at this time. Judicial appraisal of the issue may stand on a much surer footing in the context of a specific application of the agency}{\insrsid15957311\charrsid400646 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s broad grant of authority.}{\i\insrsid15957311\charrsid400646  See e.g., Toilet Goods Ass}{\i\insrsid15957311\charrsid400646 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\i\insrsid15957311\charrsid400646 n v. Gardner}{\insrsid15957311\charrsid400646 , 387 U.S. 158, 164, 87 S.Ct. 1520, 1524 (1967).}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [16]}{\insrsid15957311\charrsid400646 \tab We also reject Appellant}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{
\insrsid15957311\charrsid400646 s allegation that GTA}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s participation in the bidding process was procedurally defective. Appellant argues that prior approval from the Board, made in the course of a public hearing, was not given to allow GTA to bid on the P
CS licenses. GTA responds that if there was any defect, the Board had cured the error when it}{\insrsid400646  }{\insrsid15957311\charrsid400646 ratified the conduct of GTA. We agree. The general rule with respect to ratification is that:}{\insrsid205364 

\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid400646 {\insrsid15957311\charrsid400646 [r]atification of a contract or other act will be implied if the cor
poration, represented by the board of directors, who have knowledge of the facts accepts and retains the benefits of the contract or act, or recognizes it as binding, or acquiesces in it. They may ratify by acquiescence, and need not act at a meeting regu
larly called, but may ratify without any formal action. . . .}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }{\i\insrsid15957311\charrsid400646 Ulloa v. GEDA}{\insrsid15957311\charrsid400646 , 580 F. 2d 952, 956 (9}{\super\insrsid15957311\charrsid400646 th}{\insrsid15957311\charrsid400646 
 Cir. 1978)(citations omitted). In order for the ratification to be effective, it must first be determined that the Board even had the authority to so act. }{\i\insrsid15957311\charrsid400646 Id}{\insrsid15957311\charrsid400646 .; }{
\i\insrsid15957311\charrsid400646 See also Haggerty v. City of Oakland}{\insrsid15957311\charrsid400646 , 161 Cal.App.2d 407, 326 P.2d 957, 962 (1958) }{\i\insrsid15957311\charrsid400646 and Mott v. Horstmann}{\insrsid15957311\charrsid400646 
, 36 Cal. 2d 388, 391, 224 P.2d 11, 12 (1950)(}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 It is the general rule that a governmental body may effe
ctively ratify what it could therefore have lawfully authorized.}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 )}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [17]}{\insrsid15957311\charrsid400646 \tab In this case, we find GTA had the authority to engage in the bidding process and that the Board}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s passage of the resolution adopting and affirming GTA}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f172\fs24}}}{\insrsid15957311\charrsid400646 s conduct effectively ratifies GTA}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 
s participation in bidding for and procuring the PCS licenses.}{\insrsid205364 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid205364 {\b\insrsid15957311\charrsid400646 CONCLUSION}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid400646 {\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\b\insrsid15957311\charrsid400646 [18]}{\insrsid15957311\charrsid400646 \tab In conclusion, we find that GTA had the authority to bid for and acquire the PCS license from the FCC.}{
\insrsid400646  }{\insrsid15957311\charrsid400646 However, we also conclude that the issue of whether GTA is authorized to offer PCS in the CNMI is not ripe for this court}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s review unless and until GTA takes some action to operate a business in the CNMI.}{\insrsid400646  }{\insrsid15957311\charrsid400646 
Finally, we reject the contention that GTA had acted improperly because we conclude its conduct was ratified by the passage of the Board}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}
}{\insrsid15957311\charrsid400646 s approval.}{\insrsid205364 
\par 
\par }{\b\insrsid15957311\charrsid400646 [19]}{\insrsid15957311\charrsid400646 \tab We therefore }{\b\insrsid15957311\charrsid400646 AFFIRM }{\insrsid15957311\charrsid400646 the trial court}{\insrsid15957311\charrsid400646 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f172\fs24}}}{\insrsid15957311\charrsid400646 s order of dismissal.}{\insrsid205364 
\par }\pard \qj \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid205364 {\insrsid205364 
\par }\pard \qc \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid205364 {\lang2057\langfe1033\langnp2057\insrsid15957311\charrsid400646 JANET HEALY WEEKS\tab \tab \tab \tab }{\lang2057\langfe1033\langnp2057\insrsid400646  }{
\lang2057\langfe1033\langnp2057\insrsid15957311\charrsid400646 BENJAMIN J. F. CRUZ
\par Associate Justice\tab \tab \tab \tab }{\lang2057\langfe1033\langnp2057\insrsid400646  }{\lang2057\langfe1033\langnp2057\insrsid15957311\charrsid400646 Associate Justice}{\lang2057\langfe1033\langnp2057\insrsid400646 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid205364 {\lang2057\langfe1033\langnp2057\insrsid15957311\charrsid400646 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid400646 {\lang2057\langfe1033\langnp2057\insrsid15957311\charrsid400646 PETER C. SIGUENZA
\par Chief Justice
\par }}