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\i\fs20\insrsid11866250 Wood v. Guam Power Auth., Gov}{\i\fs20\insrsid2704831 '}{\i\fs20\insrsid11866250 t of Guam}{\fs20\insrsid11866250 , Opinion\tab Page }{\field{\*\fldinst {\fs20\insrsid11866250 PAGE }}{\fldrslt {
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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid11866250\charrsid11826216 IN THE SUPREME COURT OF GUAM}{\b\insrsid11866250\charrsid11826216 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11826216 OLIVER D. WOOD,}{\b\insrsid11866250\charrsid11826216 
\par }{\insrsid11866250\charrsid13173427 Plaintiff-Appellant
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11866250\charrsid11826216 GUAM POWER AUTHORITY, GOVERNMENT OF GUAM,}{\insrsid11866250\charrsid11826216 
\par }{\insrsid11866250\charrsid13173427 Defendant-Appellee}{\insrsid11826216\charrsid13173427 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 Supreme Court Case No.: CVA99-018
\par Superior Court Case No.:}{\insrsid7824002  }{\insrsid11866250\charrsid11826216 CV1415-97
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11866250\charrsid11826216 Filed: June 2, 2000
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11866250\charrsid11826216 Cite as:}{\b\insrsid11826216  }{\b\insrsid11866250\charrsid11826216 2000 Guam 18}{\insrsid11866250\charrsid11826216 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 Appeal from the Superior Court of Guam
\par Argued and submitted March 9, 2000
\par Hag\'e5t\'f1a, Guam
\par 
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\par }{\ul\insrsid11866250\charrsid11826216 For Plaintiff-Appellant}{\insrsid11866250\charrsid11826216 :
\par Curtis C. Van de veld, Esq.
\par The Vandeveld Law Offices, P.C.
\par Union Bank Bldg., Suite 213
\par 194 Hernan Cortes Ave.
\par Hag\'e5t\'f1a, Guam 96910\cell 
\par }{\ul\insrsid11866250\charrsid11826216 For Defendant-Appellee:}{\insrsid11866250\charrsid11826216 
\par Frederick J. Horecky, Esq.
\par Law Offices of Horecky & Associates
\par 1}{\super\insrsid11866250\charrsid11826216 st}{\insrsid11866250\charrsid11826216  Floor, J. Perez Bldg.
\par 138 Seaton Blvd.
\par Hag\'e5t\'f1a, Guam 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid11866250\charrsid11826216 \trowd \irow0\irowband0\lastrow 
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\par }{\insrsid11866250\charrsid11826216 BEFORE: BENJAMIN J. F. CRUZ, Chief Justice; PETER C. SIGUENZA, Associate Justice; and MICHAEL J. BORDALLO, Designated Justice.
\par 
\par }{\b\insrsid11866250\charrsid11826216 CRUZ, C.J.:
\par }{\insrsid11826216\charrsid11826216 
\par }{\insrsid11866250\charrsid11826216 This is an appeal of the Superior Court}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s grant of a Motion to Dismiss, or in the alternative, for Summary Judgment.}{\insrsid11826216  }{
\insrsid11866250\charrsid11826216 The Superior Court dismissed the case with prejudice after finding that Plaintiff-Appellant Oliver D. Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 
s case was precluded from raising the issues in his complaint and that he had not complied with the Government Claims Act.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 We agree with Defendant-Appellee Guam Power Authority that Wood}{
\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s suit is not comprehended under Guam}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s waiver of sovereign immunity and dismiss Wood}{
\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s appeal.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11866250\charrsid11826216 FACTUAL AND PROCEDURAL BACKGROUND}{\insrsid11866250\charrsid11826216 
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\par }{\insrsid11866250\charrsid11826216 Plaintiff-Appellant, Oliver D. Wood (hereinafter }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 Wood}{
\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 ), was employed by Defendant-Appellee, Guam Power Authority, Government of Guam (hereinafter }{
\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 GPA}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 ), as a Special Projects Engineer.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 GPA terminated Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 
s employment on October 10, 1995.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Wood filed an administrative appeal of his dismissal on October 30, 1995, with the Government of Guam Civil Service Commission (hereinafter }{
\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 CSC}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 ).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The CSC, upon GPA}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 
s Motion to Dismiss Adverse Action Appeal, issued a written decision in which it concluded that Wood was an unclassified employee without the right of appeal, and that it}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
therefore lacked jurisdiction to hear Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s appeal.}{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 Wood then filed a Notice of Application and Application for Writ of Mandate with Memorandum in Support Thereof in the Superior Court of Guam on November 4, 1996, challenging the CSC}{\insrsid2704831\charrsid11826216 '}{
\insrsid11866250\charrsid11826216 s findings that Wood was unclassified and that the CSC lacked jurisdiction.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 On January 6, 1997, GPA filed a motion to dismiss.}{\insrsid11826216  }{
\insrsid11866250\charrsid11826216 A hearing was set but subsequently continued, at Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s request.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
A new hearing date was scheduled for May 9, 1997, and Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s response or opposition to GPA}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 
s motion was due on or before April 18, 1997.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Wood failed to respond or oppose the motion, and at the hearing which eventually took place on May 16, 1997, GPA}{\insrsid2704831\charrsid11826216 '}{
\insrsid11866250\charrsid11826216 s motion was granted due to Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s failure to oppose.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The court dismissed Wood}{
\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s case with prejudice.}{\cs15\super\insrsid11866250\charrsid11826216 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl480\slmult1\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid11866250 \chftn }{\fs20\insrsid11866250  }{\i\fs20\insrsid11866250 Wood v. Government of Guam, Civil Serv. Comm}{\i\fs20\insrsid2704831 '}{\i\fs20\insrsid11866250 n}{
\fs20\insrsid11866250 , SP0292-96 (Super. Ct. Guam May 19, 1997).}}}{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 On June 19, 1997, Wood appealed the Superior Court}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s ruling with this court.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
GPA moved to dismiss.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 On August 22, 1997, we denied GPA}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s motion and set a briefing schedule.}{\insrsid11826216  }{
\insrsid11866250\charrsid11826216 Wood did not comply with the briefing schedule, and GPA filed a Motion to Dismiss based on Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s failure to timely file an appellate brief.}{
\insrsid11826216  }{\insrsid11866250\charrsid11826216 On September 19, 1997, a hearing was held, at which time Wood attempted to file his appellate brief.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The Supreme Court did not accept the brief.}{
\insrsid11826216  }{\insrsid11866250\charrsid11826216 Instead, on October 1, 1997, it dismissed Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s appeal due to his failure to comply with the briefing schedule.}{
\cs15\super\insrsid11866250\charrsid11826216 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl480\slmult1\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid11866250 \chftn }{
\fs20\insrsid11866250  }{\i\fs20\insrsid11866250 Wood v. Government of Guam, Civil Service Comm}{\i\fs20\insrsid2704831 '}{\i\fs20\insrsid11866250 n}{\fs20\insrsid11866250 , CVA97-028 (Order Oct. 1, 1997).}}}{\insrsid11826216  }{
\insrsid11866250\charrsid11826216 On October 10, 1997, Wood filed the Complaint from which the instant appeal arises.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
GPA filed a Notice of Motion and Motion to Dismiss or in the alternative for Summary Judgment, as well as a request for sanctions, on January 16, 1998.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The Superior Court dismissed Wood}{
\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s Complaint, with prejudice, in a Decision and Order dated March 23, 1998.}{\cs15\super\insrsid11866250\charrsid11826216 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\sl480\slmult1\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid11866250 \chftn }{\fs20\insrsid11866250  }{\i\fs20\insrsid11866250 Wood v. Guam Power Auth., Gov}{
\i\fs20\insrsid2704831 '}{\i\fs20\insrsid11866250 t of Guam}{\fs20\insrsid11866250 , CV1415-97 (Super. Ct. Guam Mar. 23, 1998). }}}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The court entered judgment for GPA on April 26, 1999, and jud
gment was entered on the docket on April 21, 1999.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Wood initially filed this appeal on April 22, 1998, and filed a Further Notice of Appeal on May 26, 1999.}{
\cs15\super\insrsid11866250\charrsid11826216 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\f112\super\insrsid11866250 \chftn }{
\f112\fs20\insrsid11866250  When Wood initially tried to appeal the Superior Court}{\f112\fs20\insrsid2704831 '}{\f112\fs20\insrsid11866250 s second dismissal, the Supreme Court dis
missed his suit without prejudice due to the fact that the judgment had not yet been entered by the Superior Court. }{\i\f112\fs20\insrsid11866250  }{\f112\fs20\insrsid11866250 
Judgment by the Superior Court was then entered, and Wood subsequently refiled.  Hence, there are two filing dates for this appeal one year apart in time. }}}{\insrsid11866250\charrsid11826216  }{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 On appeal, GPA argues that Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s suit is not comprehended under Guam}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 
s waiver of sovereign immunity, and that even if it is, Wood has not complied satisfactorily with the requirements of the Government Claims Act, Title 5 GCA }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  6101 }{\i\insrsid11866250\charrsid11826216 et seq}{\insrsid11866250\charrsid11826216 ., (1993).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
GPA further argues that Wood is precluded from maintaining this appeal under the theories of claim preclusion, issue preclusion, and the law of the case.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 In contrast, Wood argues th
at the Government Claims Act is inapplicable to his case because his suit is outside those excepted in the waiver of sovereign immunity.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
Additionally, he argues that even if his case does fall within the waiver and under the Government Claims Act, he has substantially complied with its provisions.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
Wood also contends that this appeal involves an entirely separate claim and issue from his previous appeal so that he is not precluded from maintaining this suit.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
Because we dispose of this case on the grounds of sovereign immunity, we do not have occasion to reach the preclusion nor the substantial compliance arguments.}{\insrsid11826216 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11866250\charrsid11826216 ANALYSIS}{\insrsid11866250\charrsid11826216  }{\insrsid11826216 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 As this is an appeal of a judgment from the trial court, this court has jurisdiction pursuant to 7 GCA }{\insrsid11866250\charrsid11826216 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  3107, 3108 (1994).}{\insrsid11826216  }{
\insrsid11866250\charrsid11826216 However, if Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s case is not covered by the waiver of sovereign immunity, then this court lacks jurisdiction to hear this appeal.}{\insrsid11826216 
 }{\insrsid11866250\charrsid11826216 The issue of the court}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s jurisdiction is the subject of both the Motion to Dismiss and this appeal.}{\insrsid11826216  
\par 
\par }{\insrsid11866250\charrsid11826216 Review of the trial court}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s grant of a motion to dismiss is }{\i\insrsid11866250\charrsid11826216 de novo}{\insrsid11866250\charrsid11826216 .}{
\i\insrsid11866250\charrsid11826216  Pacific Equity and Capital Enters. v. Baba Corp}{\insrsid11866250\charrsid11826216 ., Civ. No. 90\_00068A., 1991 WL 336903, at *2, (D. Guam App. Div.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 June 11, 199
1);}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 s}{\i\insrsid11866250\charrsid11826216 ee also Maquera v. RCA Global Comm}{\i\insrsid2704831\charrsid11826216 '}{\i\insrsid11866250\charrsid11826216 n}{\insrsid11866250\charrsid11826216 
, Civ. No. 87-00074A, 1988 WL 242616, at *2 (D. Guam App. Div. Nov. 7, 1988).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
Construing the provisions of the Organic Act and the Government Claims Act are issues of statutory construction that are reviewed }{\i\insrsid11866250\charrsid11826216 de novo}{\insrsid11866250\charrsid11826216 . }{\i\insrsid11866250\charrsid11826216 
People v. Quichocho}{\insrsid11866250\charrsid11826216 , 1997 Guam 13, }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11826216  3.
\par 
\par }{\insrsid11866250\charrsid11826216 In his appeal, Wood argues that by not being placed in the merit system, his Organic Act rights have been violated.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Moreover, Wood asserts that the action for wh
ich he is suing is an }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 intentional act,}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  clearly not }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid11866250\charrsid11826216 within the scope of the Sovereign Immunity of Guam, nor within the scope of the Government Claims Act.}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid11866250\charrsid11826216  Plaintiff-Appellant}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s Brief at 23. }{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 As the alleged wrong Wood seeks to redress against the Government of Guam is indeed an intentional act, he is without recourse.}{\insrsid11826216  }{\i\insrsid11866250\charrsid11826216 See Munoz v. Government of Guam}{
\insrsid11866250\charrsid11826216 , Civ. No. 76-16A, 1978 WL 13511, at *1 (D. Guam App. Div. Mar. 13, 1978).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
In order for someone to sue the Government of Guam or any governmental agency, sovereign immunity must be waived.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Unless a sovereign specifically waives suit by duly enacted law, it may not be sued. }
{\i\insrsid11866250\charrsid11826216 See generally}{\insrsid11866250\charrsid11826216  }{\i\insrsid11866250\charrsid11826216 Guam Econ. Dev. Auth. and Guam Visitors Bureau v. Island Equip. Co.}{\insrsid11866250\charrsid11826216 , 1998 Guam 7, }{
\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  6 (}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 There is no doubt that the doctrine of sovereign immunity applies to Guam.}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid11866250\charrsid11826216 ) (citing }{\i\insrsid11866250\charrsid11826216 Marx v. Government of Guam}{\insrsid11866250\charrsid11826216 , 866 F.2d 294, 298, 301 (9}{\super\insrsid11866250\charrsid11826216 th}{
\insrsid11866250\charrsid11826216  Cir. 1989))}{\cs15\super\insrsid11866250\charrsid11826216 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\cs15\super\insrsid11866250 \chftn }{\insrsid11866250  }{\fs20\insrsid11866250 In}{\i\fs20\insrsid11866250  Island Equipment,}{\fs20\insrsid11866250  we held that since plaintiffs were not instrument
alities of the government they were not afforded the protections of }{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 sovereign immunity.}{\fs20\insrsid11866250 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250   The determination that neither plaintiff was an instrumentality was based on two Ninth Circuit cases, }{\i\fs20\insrsid11866250 
Laguana v. Guam Visitor}{\i\fs20\insrsid2704831 '}{\i\fs20\insrsid11866250 s Bureau}{\fs20\insrsid11866250 , 725 F.2d 519 (9}{\fs20\super\insrsid11866250 th}{\fs20\insrsid11866250 
 Cir. 1984), which seemed to emphasize the unique character of the Guam Visitors Bureau (GVB), and }{\i\fs20\insrsid11866250 Bordallo v. Reyes}{\fs20\insrsid11866250 , 763 F.2d 1098 (9}{\fs20\super\insrsid11866250 th}{\fs20\insrsid11866250 
 Cir. 1985), which held that GVB was not a government entity and suggested that neither was Guam Economic Development Authority (GEDA).  }{\f37\fs20\insrsid11866250  }{\fs20\insrsid11866250 
 GPA, however, is one of the four agencies that are explicitly deemed instrumentalities in }{\i\fs20\insrsid11866250 Bordallo}{\fs20\insrsid11866250 . }{\i\fs20\insrsid11866250 Bordallo}{\fs20\insrsid11866250 , 763 F.2d at 1103.  Moreover, }{
\i\fs20\insrsid11866250 Island Equipment}{\fs20\insrsid2704831 '}{\fs20\insrsid11866250 s holding was modified with respect to GEDA in }{\i\fs20\insrsid11866250 Guam Radio Serv., Inc. v. Guam Econ. Dev. Auth.}{\fs20\insrsid11866250 , 2000 Guam 1, }{
\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250  17-18, which determined that GEDA was an }{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 official body}{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250  under the Sunshine Act.  
\par }\pard \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid11866250 Although }{\i\fs20\insrsid11866250 Island Equipment}{\fs20\insrsid11866250 
 could be read as holding that sovereign immunity was summarily waived with respect to GEDA and GVB  even if they were deemed instrumentalities due to the fact that they were granted the power to }{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 sue and be sued}{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 
 in the Guam Code Annotated, such a broad reading would be incorrect.  The court in }{\i\fs20\insrsid11866250 Guam Radio Services}{\fs20\insrsid11866250  interpreted a passage from }{\i\fs20\insrsid11866250 Island Equipment}{\fs20\insrsid11866250 
 as in fact holding that }{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 the Government Claims Act applies to GEDA by virtue of the fact that GEDA is a public corporation.
}{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250  }{\i\fs20\insrsid11866250 Id}{\fs20\insrsid11866250 . at }{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250  20.  Indeed, the holding}{\f37\fs20\insrsid11866250  in }{\i\f37\fs20\insrsid11866250 Island Equipment}{\f37\fs20\insrsid11866250  was specific}{\fs20\insrsid11866250 
ally limited to garnishment proceedings. }{\i\fs20\insrsid11866250 Id. }{\fs20\insrsid11866250 at }{\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250  9 (}{
\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 This Court therefore finds that GEDA and GVB may be subject to garnishment proceedings.}{\fs20\insrsid11866250 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid11866250 ).}}}{\insrsid11866250\charrsid11826216 ; }{\i\insrsid11866250\charrsid11826216 see also McMillan v. Department of Interior}{
\insrsid11866250\charrsid11826216 , 907 F.Supp. 322, 325 (D. Nev. 1995) (}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 
The party suing the United States must point to an unequivocal waiver of sovereign immunity.}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 
) (citation omitted).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Without such a waiver, the courts lack subject matter jurisdiction over the claim.}{\i\insrsid11866250\charrsid11826216  See Pacific Drilling, Inc. v. Marianas Drilling, Inc}{
\insrsid11866250\charrsid11826216 ., DCA Civ. No. 85-0016A, 1985 WL 56585, at *3 (D. Guam App. Div. Sept. 27, 1985) (citations omitted).}{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 Neither caselaw nor statute support a suit against the Government of Guam premised on an intentional tort.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
The authority of the Government of Guam to waive sovereign immunity is derived from the Organic Act:}{\insrsid11826216 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 Guam is hereby declared to be an unincorporated territory of the United States and the capital and seat of government t
hereof shall be located at the city of Agana, Guam. The government of Guam shall have the powers set forth in this Act, shall have power to sue by such name, and, }{\i\insrsid11866250\charrsid11826216 
with the consent of the legislature evidenced by enacted law, may be sued upon any contract entered into with respect to, or any tort committed incident to, the exercise by the government of Guam of any of its lawful powers.}{
\insrsid11866250\charrsid11826216  The government of Guam shall consist of three branches, executive, legislative and judicial, and its relations with the Fede
ral Government in all matters not the program responsibility of another Federal department or agency, shall be under the general administrative supervision of the Secretary of Interior.}{\insrsid11826216 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 48 U.S.C. }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid11866250\charrsid11826216  1421a (1987) (emphasis added) (footnotes omitted).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The Government of Guam}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 
s sovereign immunity may be waived, then, only by statute enacted by the Legislature.}{\insrsid11826216  }{\i\insrsid11866250\charrsid11826216 See}{\insrsid11866250\charrsid11826216  1 GCA }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL
 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  405 (1995) (}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid11866250\charrsid11826216 The authority and power to waive the immunity to suit of the government of Guam, or any of its authorities, departments, agencies, or instrumentalities is vested }{\i\insrsid11866250\charrsid11826216 solely}{
\insrsid11866250\charrsid11826216  in the Guam Legislature.}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 ) (emphasis added);}{
\i\insrsid11866250\charrsid11826216  Guam Econ. Dev. Auth.}{\insrsid11866250\charrsid11826216 , 1998 Guam 7 at }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid11866250\charrsid11826216  6 (citing}{\i\insrsid11866250\charrsid11826216  Marx}{\insrsid11866250\charrsid11826216 , 866 F.2d at 298). }{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 Accordingly, the Legislature has established two broad measures which waive sovereign immunity and set the par
ameters within which a suit against the Government of Guam may be maintained: the Procurement Act, which is inapplicable in this case, and the Government Claims Act.}{\cs15\super\insrsid11866250\charrsid11826216 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid11866250 \chftn }{\f112\fs20\insrsid11866250  One section of the Government Claims Act states, }{
\f112\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f112\fs20\insrsid11866250 This Chapter applies, except as provided in }{\f112\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f112\fs20\insrsid11866250  6104 of the Chapter, to the entire government of Guam, as specifically stated herein.}{\f112\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 10}{\fldrslt\f36\fs20}}}{\f112\fs20\insrsid11866250   5 GCA }{\f112\fs20\insrsid11866250 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f112\fs20\insrsid11866250 
 6102 (1993).   Section 6104 is not relevant to the instant case. }}}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Specifically, the Government Claims Act provides in part:}{\insrsid11826216 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 Pursuant to Section 3 of the Organic Act of Guam, the Government of Guam hereby waives immunity from suit,
 but only as hereinafter provided: }{\insrsid11826216 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 . . . .}{\insrsid11826216 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 
(b) for claims in tort, arising from the negligent acts of its employees acting for and at the direction of the government of Guam, even though occurring in an activity to which private persons do not engage.}{\insrsid11826216 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 5 GCA }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid11866250\charrsid11826216  6105 (1993).}{\insrsid11826216  
\par 
\par }{\insrsid11866250\charrsid11826216 GPA and the lower court are correct in asserting that a plaintiff may only sue the Government of Guam under these specific exceptions to sovereign immunity contained in section 6105.}{\insrsid11826216  }{
\insrsid11866250\charrsid11826216 Unless Wood}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s claim falls within the specific exceptions of section 6105, his suit is barred for lack of subject matter jurisdiction.}{
\insrsid11826216  }{\insrsid11866250\charrsid11826216 Wood cannot point to any statute which waives the Government of Guam}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s sovereign immunity with respect to intentional torts bec
ause none exists.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The Government Claims Act does not waive sovereign immunity for intentional torts. }{\i\insrsid11866250\charrsid11826216 See}{\insrsid11866250\charrsid11826216  5 GCA }{
\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  6105.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
Indeed, rather than premising his claim on a subsection of section 6105, Wood explicitly admits that his claim is not encompassed by the Government Claims Act.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Wood}{\insrsid2704831\charrsid11826216 '
}{\insrsid11866250\charrsid11826216 s claim}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s falls outside of the purview of the Government Claims Act and so is barred due to lack of jurisdiction.}{\insrsid11826216 
\par 
\par }{\insrsid11866250\charrsid11826216 Wood remarks that since intentional acts are not encompassed by section 6105, if the Government Claims Act were to apply then he would be }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 deprived}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 
 of his rights to proceed with his Organic Act claim, and this would }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 
stand the Organic Act on its head ... making the Organic Act subservient to the laws enacted by the Legislature of the government of Guam.}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid11866250\charrsid11826216  Plaintiff-Appellant}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s Brief at 24.}{\insrsid11826216  }{\i\insrsid11866250\charrsid11826216 See also}{\insrsid11866250\charrsid11826216 
 Plaintiff-Appellant}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s Reply Brief at 4-5.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
However, Wood misunderstands the statutory structure in place and the nature of sovereign immunity.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 The Organic Act is not }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 subservient}{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216 
 to the laws made by the Legislature; it grants the Legislature the power to waive sovereign immunity as it sees fit.}{\insrsid11826216  }{\i\insrsid11866250\charrsid11826216 See Munoz}{\insrsid11866250\charrsid11826216 , 1978 WL 13511, at *1.}{
\insrsid11826216  }{\insrsid11866250\charrsid11826216 Moreover, the Ninth Circuit construing federal law stated }{\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid11866250\charrsid11826216 it is pellucid that the United States cannot be sued on the theory that there has been a violation of [the appellant}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s] constitutional rights.}{
\insrsid11866250\charrsid11826216 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid11866250\charrsid11826216  }{\i\insrsid11866250\charrsid11826216 Roundtree v. United States}{\insrsid11866250\charrsid11826216 
, 40 F.3d 1036, 1038 (9}{\super\insrsid11866250\charrsid11826216 th}{\insrsid11866250\charrsid11826216  Cir. 1994) (citing }{\i\insrsid11866250\charrsid11826216 FDIC v. Meyer}{\insrsid11866250\charrsid11826216 
, 510 U.S. 471, 482-86, 114 S.Ct. 996, 1001, 1004-06 (1994)).}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
By crafting exceptions to sovereign immunity, the Legislature has not violated or superceded the Organic Act; instead, it has followed the directives contained in the Organic Act.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
The Legislature did not waive sovereign immunity for intentional torts, and Wood is barred from maintaining his suit due to lack of jurisdiction.}{\insrsid11826216  
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\b\insrsid11866250\charrsid11826216 CONCLUSION}{\insrsid11826216 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 Guam}{\insrsid2704831\charrsid11826216 '}{\insrsid11866250\charrsid11826216 s sovereign immunity has not been waived with respect to
 intentional torts.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Without a waiver of sovereign immunity, courts lack jurisdiction to hear a suit against the Government of Guam.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 
Wood himself asserts that his suit is founded upon an intentional tort.}{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Therefore, this court is without jurisdiction to hear the suit, and this appeal is hereby }{\b\insrsid11866250\charrsid11826216 
DISMISSED}{\insrsid11866250\charrsid11826216 .}{\insrsid11826216 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11866250\charrsid11826216 PETER C. SIGUENZA\tab \tab \tab \tab }{\insrsid11826216  }{\insrsid11866250\charrsid11826216 MICHAEL J. BORDALLO
\par Associate Justice\tab \tab \tab \tab }{\insrsid11826216  }{\insrsid11866250\charrsid11826216 Designated Justice}{\insrsid11826216 
\par }\pard \qj \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11826216 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid11826216 {\insrsid11826216 BENJAMIN J. F. CRUZ}{\insrsid11866250\charrsid11826216 
\par Chief Justice
\par }}