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{\author lroberto}{\operator blake_r}{\creatim\yr2005\mo8\dy12\hr9\min3}{\revtim\yr2006\mo3\dy14\hr8\min26}{\version4}{\edmins3}{\nofpages11}{\nofwords3790}{\nofchars21603}{\*\company Superior Court of Guam}{\nofcharsws25343}{\vern16391}}
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Sumitomo v. GovGuam}{\fs20\insrsid1968208 , Opinion\tab Page }{\field{\*\fldinst {\fs20\insrsid1968208 PAGE }}{\fldrslt {\fs20\lang1024\langfe1024\noproof\insrsid6818816 11}}}{\fs20\insrsid1968208  of 16
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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid1968208\charrsid6818816 IN THE SUPREME COURT OF GUAM}{\insrsid6818816 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 SUMITOMO CONSTRUCTION, CO., LTD.}{\b\insrsid1968208\charrsid6818816 
\par }{\insrsid1968208\charrsid6818816 Plaintiff-Appellee
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 GOVERNMENT OF GUAM}{\insrsid1968208\charrsid6818816 
\par Defendant-Appellant}{\insrsid6818816 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 Supreme Court Case Nos.: CVA00-019; CVA00-006
\par Superior Court Case Nos.: CV1589-99; CV1436-00 }{\insrsid6818816 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 Consolidated Appeals from the Superior Court of Guam
\par Argued and submitted on September 6, 2001
\par Hag\'e5t\'f1}{\insrsid6818816 a, Guam
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\par }{\ul\insrsid1968208\charrsid6818816 Appearing for Plaintiff-Appellee}{\insrsid1968208\charrsid6818816 :
\par Thomas E. Sterling, Esq.
\par Klemm, Blair, Sterling, and Johnson
\par A Professional Corporation
\par Suite 1008, Pacific News Bldg.
\par 238 Archbishop F.C. Flores Street
\par Hag\'e5t\'f1a, Guam 96910\cell 
\par }{\ul\insrsid1968208\charrsid6818816 Appearing for Defendant-Appellant}{\insrsid1968208\charrsid6818816 :
\par Eric A. Heisel
\par Assistant Attorney General
\par Office of the Attorney General 
\par Suite 2-200E, Guam Judicial Ctr.
\par 120 West O}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 Brien Dr.
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\par }{\insrsid1968208\charrsid6818816 BEFORE: PETER C. SIGUENZA, JR., Chief Justice, F. PHILIP CARBULLIDO, Associate Justice, and BENJAMIN J.F. CRUZ, Justice }{\i\insrsid1968208\charrsid6818816 Pro Tempore}{\insrsid1968208\charrsid6818816 .
\par 
\par }{\b\insrsid1968208\charrsid6818816 CARBULLIDO, J.:}{\insrsid1968208\charrsid6818816 
\par 
\par }{\b\insrsid1968208\charrsid6818816 [1]}{\insrsid1968208\charrsid6818816 \tab The Defendant-Appellant, the Government of Guam (hereinafter }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid1968208\charrsid6818816 Government}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
) appeals two separate judgments entered in the lower court awarding the Plaintiff-Appellee, Sumitomo Construction Co., Ltd. (hereinafter }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid1968208\charrsid6818816 Sumitomo}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
) interest on the respective judgments in actions for breach of contract.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The Government argues that the trial court erred in awarding both prejudgment and post-judgment interest on the ground that the Legislature has not waived sovereign immunity against such interest.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
We find that Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 5475 is a waiver of immunity against prejudgment interest for damages awarded as a result of the government}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s breach of a procurement contract.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Accordingly, we affirm the trial court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s award of prejudgment interest.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
However, we find that the Legislature has not waived immunity against post-judgment interest and therefore reverse that portion of the trial court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s judgments.
\par }{\b\insrsid1968208\charrsid6818816 
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\par }{\b\insrsid1968208\charrsid6818816 [2]}{\insrsid1968208\charrsid6818816 \tab This is a consolidated appeal of two judgments entered by the Superior Court, which arise out of two separate contracts entered into by Sumitomo and the Government.}{
\insrsid6818816  }{\insrsid1968208\charrsid6818816 On or about October 20, 1994, the Department of Public Works (hereinafter }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1968208\charrsid6818816 DPW}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 ) of the Government awarded a road construction project to Sumitomo.
}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The original contract price was $1,469,000.00, which increased over the course of construction to $3,106,133.19.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The Government paid all but $196,428.91 of the contract amount.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 On March 5, 1997, Sumitomo made a request for final payment.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
On July 27, 1998, Sumitomo filed a government claim pursuant to the Government Claims Act, 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6101, }{\i\insrsid1968208\charrsid6818816 et seq.}{\insrsid1968208\charrsid6818816  with the Attorney General}{\insrsid335205\charrsid6818816 '}{
\insrsid1968208\charrsid6818816 s Office.}{\i\insrsid6818816  }{\insrsid1968208\charrsid6818816 The Attorney General}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s Office informed Sumitomo tha
t DPW did not dispute the outstanding principal.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Sumitomo thereafter filed a Complaint in the Superior Court seeking payment of the remaining balance of $196,428.91 plus interest from March 6, 1997 until the time of payment.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Sumitomo filed motions for Judgment on the Pleadings and for Summary Judgment.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The Government admitted, in its Answer as well as its Opposition to Summary Judgment, that it owed the principal amount, however, the Government argued against the award of prejudgment interest.
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [3]}{\insrsid1968208\charrsid6818816 \tab Similarly, on June 3, 1998, Sumitomo entered into a road construction contract with the Government.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The original contract amount was $4,281,834.00, which was subsequently increased by $411,311.11.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The Government accepted the project as complete on March 1, 2000.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 The government paid all but $412,331.11 of the contract amount.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
As a result, Sumitomo filed a complaint in the Superior Court on August 23, 2000, requesting the outstanding principal and prejudgment interest.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 In its Answer, the Government admitted th
at it owed the principal amount but disputed liability for prejudgment interest. 
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [4]}{\insrsid1968208\charrsid6818816 \tab The lower court entered a judgment awarding Sumitomo the requested principal amount and prejudgment interest, as well as post-judgment interest at a rate of 6% }{
\i\insrsid1968208\charrsid6818816 per annum}{\insrsid1968208\charrsid6818816 , in each action, respectively.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The Government appealed both judgments to this court.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Because both appeals turn on the same issue, this court granted the Government}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s request to consolidate the appeals.}{
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\fs20\insrsid1968208 The court is disturbed by the quality of the parties}{\fs20\insrsid335205 '}{\fs20\insrsid1968208  briefing in this appeal.  The Government did not cite to a single case issued by this court, one of which, }{\i\fs20\insrsid1968208 
Pacific Rock v. Department of Education}{\fs20\insrsid1968208 , 2000 Guam 19, was adverse authority that was directly relevant to the main issue in this case and controlling authority at the time the briefs were filed.  Sumitomo}{\fs20\insrsid335205 '}{
\fs20\insrsid1968208 s actions are no more availing, as it only cited one case issued by this court.  In our view, the complete lack of citation to precedent established by this court tends to indicate that the parti
es either were extremely careless in preparing for this appeal or simply refuse to recognize this court}{\fs20\insrsid335205 '}{\fs20\insrsid1968208 s case law as controlling legal authority in this jurisdiction.  Either implication is disconcerting.}}}{
\insrsid1968208\charrsid6818816 
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\par }{\b\insrsid1968208\charrsid6818816 [5]}{\insrsid1968208\charrsid6818816 \tab This court has jurisdiction over the appeal of a final judgment of the Superior Court of Guam pursuant to Title 7 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL
 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  3107 (1994).
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 III.}{\insrsid1968208\charrsid6818816 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [6]}{\insrsid1968208\charrsid6818816 \tab The issue on appeal is whether the trial court erred in its grant of summary judgment awarding 
prejudgment and post-judgment interest to Sumitomo in a breach of contract action against the Government.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 We review a grant of summary judgment }{\i\insrsid1968208\charrsid6818816 de novo}{
\insrsid1968208\charrsid6818816 .}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Ceasar v. QBE Ins. (Int}{\i\insrsid335205\charrsid6818816 '}{\i\insrsid1968208\charrsid6818816 l), Ltd.}{\insrsid1968208\charrsid6818816 , 2001 Guam 6, }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6 (citations omitted).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Summary judgment is proper }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 if the pleadings, depositions, answer
s to interrogatories, and admissions on file, together with the affidavits, if any, show that there is no genuine issue as to any material fact and that the moving party is entitled to a judgment as a matter of law.}{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Guam R. Civ. P. 56(c). 
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [7]}{\insrsid1968208\charrsid6818816 \tab Courts generally review a lower court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s award of interest for an abuse of discretion.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 See US ex rel. Bartec Indus., Inc. v. United Pac. Co.}{\insrsid1968208\charrsid6818816 , 976 F.2d 1274, 1279 (9th Cir. 1992); }{\i\insrsid1968208\charrsid6818816 Domestic Linen Supply & Laundry Co. v. Kenw
ood Dealer Group, Inc.}{\insrsid1968208\charrsid6818816 , 672 N.E.2d 184, 191 (Ohio App. 1996).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 However, if a challenge to interest on a judgment rests on sovereign immunity grounds, a lower court}{
\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s award of interest is reviewed }{\i\insrsid1968208\charrsid6818816 de novo}{\insrsid1968208\charrsid6818816 .}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Hall v. Bolger}{
\insrsid1968208\charrsid6818816 , 768 F.2d 1148, 1150 (9th Cir. 1985).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The existence of a waiver of sovereign immunity involves statutory interpretation, which we review }{
\i\insrsid1968208\charrsid6818816 de novo}{\insrsid1968208\charrsid6818816 .}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Ceasar}{\insrsid1968208\charrsid6818816 , 2001 Guam 6 at }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL
 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  7 (citations omitted).
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 A. Sovereign Immunity}{\insrsid1968208\charrsid6818816 
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [8]}{\insrsid1968208\charrsid6818816 \tab The government of Guam enjoys broad sovereign immunity.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Marx v. Gov}{\i\insrsid335205\charrsid6818816 '}{
\i\insrsid1968208\charrsid6818816 t of Guam}{\insrsid1968208\charrsid6818816 , 866 F.2d 294, 298 (9th Cir. 1989); }{\i\insrsid1968208\charrsid6818816 see also Wood v. Guam Power Auth.}{\insrsid1968208\charrsid6818816 , 2000 Guam 18, }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  10.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 While sovereign immunity is inherent, C
ongress has provided a specific mechanism by which sovereign immunity may be waived.}{\i\insrsid6818816  }{\insrsid1968208\charrsid6818816 48 U.S.C. }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  1421a (1987); }{\i\insrsid1968208\charrsid6818816 see Marx}{\insrsid1968208\charrsid6818816 , 866 F.2d at 298.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Section 1421a of the Organic Act provides in pertinent part:}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 The government of Guam shall have the powers set forth in this Act, shall have power to sue by such name, }{\i\insrsid1968208\charrsid6818816 
and, 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.}{
\insrsid1968208\charrsid6818816 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par 48 U.S.C. }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  1421a (emphasis added).
\par 
\par }{\b\insrsid1968208\charrsid6818816 [9]}{\insrsid1968208\charrsid6818816 \tab Under the Organic Act, sovereign immunity can only be waived by duly enacted legislation.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See id}{
\insrsid1968208\charrsid6818816 .; }{\i\insrsid1968208\charrsid6818816 see also Wood}{\insrsid1968208\charrsid6818816 , 2000 Guam 18 at }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid1968208\charrsid6818816  10.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Unless such legislation exists, the government cannot be sued.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Wood}{\insrsid1968208\charrsid6818816 
, 2000 Guam 18 at }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  10.
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [10]}{\insrsid1968208\charrsid6818816 \tab Sovereign immunity extends to the interest on a judgment against the government.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Library of Congress v. Shaw}{
\insrsid1968208\charrsid6818816 , 478 U.S. 310, 314, 106 S.Ct. 2957, 2961 (1986), }{\i\insrsid1968208\charrsid6818816 overruled by statute on other grounds as stated in Estate of Reynolds v. Martin}{\insrsid1968208\charrsid6818816 
, 985 F.2d 470 (9th Cir. 1993); }{\i\insrsid1968208\charrsid6818816 see also}{\insrsid1968208\charrsid6818816  }{\i\insrsid1968208\charrsid6818816 Far West Fed. Bank v. Office of Thrift Supervision}{\insrsid1968208\charrsid6818816 
, 119 F.3d 1358, 1366 (9th Cir. 1997).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
In the absence of express . . . [legislative] consent to the award of interest }{\i\insrsid1968208\charrsid6818816 separate from a general waiver of immunity to suit}{\insrsid1968208\charrsid6818816 , the United States is immune from an interest award.}{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Shaw}{\insrsid1968208\charrsid6818816 
, 478 U.S. at 314, 106 S. Ct. 2957 at 2961 (emphasis added).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Sovereign immunity in this regard applies to both prejudgment and post-judgment interest.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 See, e.g., Far West Fed. Bank}{\insrsid1968208\charrsid6818816 , 119 F.3d at 1366-67 (holding that the FDIC was immune from an award of pre-judgment interest); }{\i\insrsid1968208\charrsid6818816 Hall}{
\insrsid1968208\charrsid6818816 , 768 F.2d at 1151 (holding that the government waived the Postal Services}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816  sovereign immunity against post-judgment interest).}{
\cs15\super\insrsid1968208\charrsid6818816 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1968208 2}{\insrsid1968208  }{\fs20\insrsid1968208 
Two recognized exceptions to the no-interest rule are: (1) a condemnation action, in which }{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208 the right to }{
\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208 just compensation}{\fs20\insrsid335205 '}{\fs20\insrsid1968208 
 under the Takings Clause has been interpreted as including prejudgment interest;}{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208 
 and (2) when the government entity at issue has a sued-and-be-sued clause and has }{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208 
cast off the cloak of sovereign and assumed the status of a commercial enterprise.}{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208   }{\i\fs20\insrsid1968208 
Coast Fed. Bank v. United States}{\fs20\insrsid1968208 , 48 Fed. Cl. 402, 442 (Ct. Fed. Cl. 2000) (citations omitted); }{\i\fs20\insrsid1968208 Shaw}{\fs20\insrsid1968208 , 478 U.S. at 317 n.5, 106 S.Ct. at 2963 n.5.}}}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Therefore, pursuant to the Organic Act, unless the Guam Legislature waives sovereign immunity against interest, a party may not recover interest on a judgment against the government.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 See }{\insrsid1968208\charrsid6818816 48 U.S.C. }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  1421a.}{
\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 1.}{\b\insrsid6818816  }{\b\insrsid1968208\charrsid6818816 Prejudgment Interest.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [11]}{\insrsid1968208\charrsid6818816 \tab To affirm the lower court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 
s award of prejudgment interest, this court must find both a waiver of immunity against suit as well as against prejudgment interest.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The waiver of immunity against suit for breach of contract is contained in the Government Claims Act, 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816 
 6105(a), which provides:}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 Pursuant to Section 3 of the Organic Act of Guam, the Government of Guam hereby waives immunity from suit, but only as hereinafter provided:

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 (a) for all expenses incurred in reliance upon a contra
ct to which the Government of Guam is a party, but if the contract has been substantially completed, expectation damages may be awarded;
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 . . . . 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6105(a) (1998); }{\i\insrsid1968208\charrsid6818816 see also Pacific Rock Corp. v. Dep}{
\i\insrsid335205\charrsid6818816 '}{\i\insrsid1968208\charrsid6818816 t of Educ.}{\insrsid1968208\charrsid6818816 , 2001 Guam 21, }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1968208\charrsid6818816  35.
\par 
\par }{\b\insrsid1968208\charrsid6818816 [12]}{\insrsid1968208\charrsid6818816 \tab There is no similar waiver of immunity against prejudgment interest in the Claims Act.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
However, such waiver is found in the Procurement Law, 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 That section provides:}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 Interest. }{\insrsid1968208\charrsid6818816 
Interest on amounts ultimately determined to be due to a contractor or the Territory shall be payable at the statutory rate applicable to judgments from the date the claim arose through the date of decision or judgment, whichever is later. 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475 (1998).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [13]}{\insrsid1968208\charrsid6818816 \tab The Government argues that the prejudgment interest provision in the Procurement Law, 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 5475, refers only to interest on judgments that are allowed under the Procurement Law, which does not include money damages for a breach of contract claim; and, therefore, 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475 does not waive immunity against interest on such claims.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The Government further asserts that even if 5 GCA }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 5475 is interpreted to be a waiver of sovereign immunity against interest on a judgment awarding breach of contract damages, it was impliedly repealed by 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a).}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [14]}{\insrsid1968208\charrsid6818816 \tab With regard to the Government}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s first contention, the seminal question is whether the br
each of contract claim in the instant action is cognizable under the Procurement Law.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 We find that it is.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The Procurement Law contemplates resolution of contract disputes, that is, disputes arising between the contractor and the government }{\i\insrsid1968208\charrsid6818816 after}{\insrsid1968208\charrsid6818816  the contract is formed.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 See}{\insrsid1968208\charrsid6818816  Title}{\i\insrsid1968208\charrsid6818816  }{\insrsid1968208\charrsid6818816 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427 (1998).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427 provides in relevant part:}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 Authority to Resolve Contract and Breach of Contract Controversies.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 (a) Applicability.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
This Section applies to controversies between the Territory and a contractor and which arise under, or by virtue of, a contract between them. }{\i\insrsid1968208\charrsid6818816 
This includes without limitation controversies based upon breach of contract, mistake, misrepresentation, or other cause for contract modification or rescission.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\ul\insrsid1968208\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
(b) Authority. The Chief Procurement Officer, the Director of Public Works, the head of a purchasing agency, or a designee of one of these officers is authorized, prior to commencement of an 
action in a court concerning the controversy, to settle and resolve a controversy described in Subsection (a) of this Section. This authority shall be exercised in accordance with regulations promulgated by the Policy Office.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427(a), (b) (emphasis added).}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [15]}{\insrsid1968208\charrsid6818816 \tab The Government argues in favor of a strict construction of 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427(a), that is, that the }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 or other cause}{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  language in that subsection reveals that the Procurement Law}{\insrsid335205\charrsid6818816 '}{
\insrsid1968208\charrsid6818816 s provisions apply only to equitable relief in a breach of contract action, such as modification and rescission, and not for money damages.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
This interpretation is not sound as it contravenes the Legislature}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 
s intent, as evidenced by the extensively detailed remedial provisions of the Procurement Law, to provide a comprehensive mechanism of relief for procurement contract disputes.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
As clearly provided in 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427(a), such disputes include, }{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid1968208\charrsid6818816 without limitation}{\insrsid1968208\charrsid6818816 ,}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  claims for breach of contract.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The requested relief in the vast majority of such breach of contract claims is damages, and not equitable relief.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 In light of the Legislature}{\insrsid335205\charrsid6818816 '}{
\insrsid1968208\charrsid6818816 s intent to provide a comprehensive procedure of relief for procurement contract disputes, it would be illogical for this court to read the inclusive language of 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427(a) as excluding the most common claim for relief for a breach of a procurement contract, specifically, claims for money damages.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 See Pacific Rock}{\insrsid1968208\charrsid6818816 , 2001 Guam 21 at }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 33 (holding that a contractor seeking breach of contract damages is }{\i\insrsid1968208\charrsid6818816 required }{\insrsid1968208\charrsid6818816 to exhaust administrative remedies by first seeking resolution of the claim with the ch
ief procurement officer in the manner prescribed in 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427).}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Thus, we reject the Government}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s narrow interpretation of 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5427(a), and hold that controversies based upon a claim for breach of contract damages are cognizable under the Procurement Law.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See id}{
\insrsid1968208\charrsid6818816 .}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Accordingly, the Procurement Law}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s prejudgment interest provision, 5 GCA }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475, which allows for }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 interest on amounts ultimately determined to be due a contractor or the Territory,}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  applies to judgments awarding damages for breach of a procurement contract.
\par }{\insrsid6818816 
\par }{\insrsid1968208\charrsid6818816 The Government further argues that 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 5427 was impliedly repealed by 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Section 6301(a) provides:}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 Maximum Limits of Government Liability.}{\insrsid1968208\charrsid6818816  (a) In all 
cases, neither line agencies nor autonomous agencies nor the government of Guam shall be liable for interest prior to the date of judgment, nor for any punitive damages, nor for attorney's fees of the claimant; provided, that attorney's fees may be awarde
d a successful claimant as part of a final court judgment if the court finds that suit was filed only because the government of Guam failed to act upon the claim before the expiration of the time specified in }{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6208(b) of this Chapter and such failure resulted from failure to investigate the claim.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a) (1998).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The Government contends that the language in section 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 6301(a), preserving immunity against prejudgment interest }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 in all cases,}{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  irreconcilably conflicts with the language of 5 GCA }{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475, thereby repealing 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475 by implication.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 We do not agree.}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [16]}{\insrsid1968208\charrsid6818816 \tab Repeals by implication are disfavored.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Lujan v. Lujan}{\insrsid1968208\charrsid6818816 , 2000 Guam 21, }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  11 (citation omitted); }{\i\insrsid1968208\charrsid6818816 see also People v. Quinata}{
\insrsid1968208\charrsid6818816 , Crim. No. 81-0004A, 1982 WL 30546, at * 2 (D. Guam App. Div. Jun. 29, 1982) (citation omitted).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Implied repeals can be found in two instances: }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 (1) where provisions in the two acts are in irreconcilable conflict}{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 , or }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1968208\charrsid6818816 (2) if the later act covers the whole subject of the earlier one and is clearly intended as a substitute.}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Quinata}{\insrsid1968208\charrsid6818816 , 1982 WL 30546, at * 2 (citation omitted).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Courts can avoid a finding of implied repeal if the two statutes can be reconciled.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See id}{\insrsid1968208\charrsid6818816 .;}{\i\insrsid1968208\charrsid6818816  Lujan}{
\insrsid1968208\charrsid6818816 , 2000 Guam 21 at }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  11.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 The Procurement Law itself contains an implied repealer provision.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See }{\insrsid1968208\charrsid6818816 Title 5 GCA }{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5006 (1998).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 That section provides:}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 Construction Against Implied Repealer. }{\insrsid1968208\charrsid6818816 Since this Chapter is a general law, no pa
rt of it shall be deemed to be impliedly repealed by subsequent legislation if such construction of the subsequent legislation can be reasonably avoided.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par }{\i\insrsid1968208\charrsid6818816 Id}{\insrsid1968208\charrsid6818816 .}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Therefore, the Procurement Law requires a court to attempt to reconcile a contradictory statute 
before determining that the later statute repeals a provision of the Procurement Law by implication.
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [17]}{\insrsid1968208\charrsid6818816 \tab We must first attempt to reconcile the two statutes.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 In determining whether there is an implied repeal, courts resort 
to rules of statutory construction.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See California v. United States}{\insrsid1968208\charrsid6818816 , 47 Fed. Cl. 688, 694 (Ct. Fed. Cl. 2000).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
It is a cardinal rule of statutory construction that courts must look first to the language of the statute itself.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Pangelinan v. Gutierrez}{\insrsid1968208\charrsid6818816 , 2000 Guam 11, }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  23.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Absent clear legislative intent to the contrary, the plain meaning prevails.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Aaron v. SEC}{\insrsid1968208\charrsid6818816 , 446 U.S. 680, 697, 100 S. Ct. 1945, 1956 (1980).}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Neither party has pointed out clear legislative intent that 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 6301(a) applies only to tort actions, thus, looking to the plain language of the statute, section 6301(a) can be interpreted as governing }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid1968208\charrsid6818816 all cases,}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  tort as well as contract.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 However, }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
[n]otwithstanding the deference due the plain-meaning of statutory language, . . . such language need not be followed where the result would lead to absurd or impractical consequences, untenable distinctions, or unreasonable results.}{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Bowlby v. Nelson}{\insrsid1968208\charrsid6818816 
, Civ. No. 83-0096A, 1985 WL 56583, at *2 (D. Guam App. Div. Sept. 5, 1985).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 A
bsurdity may result when the legislature drafts a statute using language that is broader and more sweeping than that which the legislature intended.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See id}{\insrsid1968208\charrsid6818816 .}{
\insrsid6818816  }{\insrsid1968208\charrsid6818816 In such cases, the court can interpret the broad language in a limited fashion in an effort to effectuate legislative intent.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See id}{
\insrsid1968208\charrsid6818816 .}{\i\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Moreover, in determining legislative intent, a statute should be read as a whole, and therefore, courts should construe each section in conjunction with other sections.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Kelly v. Robinson}{
\insrsid1968208\charrsid6818816 , 479 U.S. 36, 43, 107 S. Ct. 353, 357-58 (1986), }{\i\insrsid1968208\charrsid6818816 overruled by statute on other grounds in }{\insrsid1968208\charrsid6818816 217 B.R. 1008 (N.D. Ill. 1998).}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 As stated by the Supreme Court of the United States, }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
words and people are known by their companions.}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Gutierrez v. Ada}{
\insrsid1968208\charrsid6818816 , 528 U.S. 250, 255, 120 S. Ct. 740, 744 (2000).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Accordingly, }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid1968208\charrsid6818816 [i]n expounding a statute, we must not be guided by a single sentence or member of a sentence, but look to the provisions of the whole law, and to its object and policy.}{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Kelly}{\insrsid1968208\charrsid6818816 , 479 U.S. at 43, 107 S.Ct. at 357-58 (citation omitted).}{\insrsid1968208 

\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [18]}{\insrsid1968208\charrsid6818816 \tab The trial court reconciled 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL
 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475 and 6301(a) by determining that the Claims Act provision, 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a), does not govern contract cases, but rather, it governs tort cases only.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 We agree.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 While the plain language of the statute supports a finding that it applies to all cases, contract and tort, a reading of 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a) in conjunction with the other subsections of section 6301 as well as other sections of the Claims Act impels a finding that the Legislature intended that section 6301(a)}{
\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s bar on prejudgment interest applies to tort claims only.
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [19]}{\insrsid1968208\charrsid6818816 \tab The Claims Act clearly waives sovereign immunity against contract and tort liability.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See }{
\insrsid1968208\charrsid6818816 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6105.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Article 3 of the Claims Act provides the law governing liability and insurance.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Section 6301 is entitled }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 Maximum Limits of Government Liability.}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Subsection (a) sweepingly provides that the government shall not be liable for prejudgment interest.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See }{\insrsid1968208\charrsid6818816 5 GCA }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
However, the subsequent subsections of section 6301 address tort actions, and make absolutely no reference to contract actions.}{\cs15\super\insrsid1968208\charrsid6818816 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid1968208 \chftn }{\insrsid1968208  }{\fs20\insrsid1968208 5 GCA }{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208  6301 provides, in its entirety:
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\b\f37\fs20\insrsid1968208 Maximum Limits of Government Liability.}{\f37\fs20\insrsid1968208  (a) In all cases, neither line agencies nor autonomous agencies nor the}{\f37\insrsid1968208  }{
\f37\fs20\insrsid1968208 
government of Guam shall be liable for interest prior to the date of judgment, nor for any punitive damages, nor for attorney's fees of the claimant; provided, that attorney's fees may be awarded a successful claimant as part of a final court judgment if 
the court finds that suit was filed only because the government of Guam failed to act upon the claim before the expiration of the time specified in }{\f37\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt
\f36\fs20}}}{\f37\fs20\insrsid1968208  6208(b) of this Chapter and such failure resulted from failure to investigate the claim.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\f37\fs20\insrsid1968208 
(b) The government of Guam, in the case of line agencies, shall be liable in tort for not more than $100,000 in an action for wrongful death, nor for more than $300,000 in any other tort action.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\f37\fs20\insrsid1968208 (c) Each autonomous agency shall be liable for torts committed by it for not more than the amounts stated in subsection (b), above.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\f37\fs20\insrsid1968208 (d)(1) In the case of the Guam Memorial Hospital Authority, it shall also be liable in tort, not to exceed the limits}{\f37\insrsid1968208  }{\f37\fs20\insrsid1968208 
stated in subsection (b), above, for d
amages arising from negligent acts of Government Health Professionals performed within facilities operated by said Authority as agents of the government of Guam at the request of the Government. Government Health Professionals shall be considered agents o
f the government of Guam within the meaning of }{\f37\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f37\fs20\insrsid1968208  6212 of this Chapter.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \fi720\li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\f37\fs20\insrsid1968208 (2) Government Health Professionals performing services in government facilities other than those operated by the Guam Memorial Hospital Auth
ority shall be considered agents of the line department or autonomous agency they serve.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \fi720\li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\f37\fs20\insrsid1968208 
(3) A Government Health Professional is any person who is licensed or certified to practice a healing art in Guam and is practicing that art within a government of Guam facility as an agent of the government of Guam.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \fi720\li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0 {\f37\fs20\insrsid1968208 
(4) Health Professionals, including independent contractors serving as agents of the government and government employees covered under the provisions of the Government Claims Act, shall not be liable for 
more than the amount stated in Subsection (b). Any award against the government employer as herein provided bars further award from the Health Professional or the government employee in the same cause of action for injuries arising out of the same acts or
 omissions unless:
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\f37\fs20\insrsid1968208 
\par }\pard \qj \fi720\li1440\ri0\nowidctlpar\faauto\rin0\lin1440\itap0 {\f37\fs20\insrsid1968208 
(i) to the extent that any liability of the government of Guam or all other government agencies, (including, but not limited to, all instrumentalities, autonomous agencies, semi-autonomous agencies, public corporations), is covered by a 
policy or policies of insurance, the government waives the limitation of liability found in Title 5 of the Guam Code Annotated }{\f37\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{
\f37\fs20\insrsid1968208  6301; provided, that the government shall not be liable in damages for tort in any amount which exceeds the coverage of insurance and the limitation of liability contained in 5 GCA }{\f37\fs20\insrsid1968208 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f37\fs20\insrsid1968208  6213; or
\par (ii) the Court finds that the agent or the government employee was acting outside the scope of her/his employment.
\par }}}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Moreover, section 6302, which immediately follows section 6301, addresses the limitations in contract actions.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 That section provides:}{
\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 Limitations on Contract Obligations.}{\b\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Each autonomous agency shall be liable for its own contract obligations.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The government of Guam shall be liable only for those contract obligations undertaken by the line agencies, or for those contract obligations undertaken by autonomous agencies in which the government is a named party specifically made jointly liable 
with the autonomous agency by the contract.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 
\par Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6302 (1998).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Thus, the government}{
\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s contractual liability is covered in a completely separate section of the Act, further indicating that section 6301(a) governs tort liability and not contract liability.}{\insrsid6818816  
}{\i\insrsid1968208\charrsid6818816 See Kelly}{\insrsid1968208\charrsid6818816 , 479 U.S. at 43, 107 S. Ct. at 357-58.
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [20]}{\insrsid1968208\charrsid6818816 \tab Accordingly, we choose to interpret the language in section 6301(a) which bars the recovery of prejudgment interest }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 in all cases}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1968208\charrsid6818816  narrowly in an effort to effectuate legislative intent.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Bowlby}{\insrsid1968208\charrsid6818816 , 1985 WL 56583, at *2.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Specifically, we interpret language }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 in all cases}{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  to mean in all }{\i\insrsid1968208\charrsid6818816 tort }{\insrsid6818816 cases.}{
\insrsid1968208\charrsid6818816 
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [21]}{\insrsid1968208\charrsid6818816 \tab Under the foregoing interpretation, the section 6301(a) bar on the recover
y of prejudgment interest does not conflict with the statutory waiver of immunity against prejudgment interest found in the Procurement Law.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Therefore, 5 GCA }{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  6301(a) does not impliedly repeal 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Quinata}{\insrsid1968208\charrsid6818816 , 1982 WL 30546, at * 2.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Consequently, we find no error in the lower court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s award of prejudgment interest.}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 2.}{\b\insrsid6818816  }{\b\insrsid1968208\charrsid6818816 Post-Judgment Interest. }{\insrsid1968208\charrsid6818816 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [22]}{\insrsid1968208\charrsid6818816 \tab The Government challenges the lower court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s award of post-judgment interest.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Initially, we address Sumitomo}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 
s argument that issue of post-judgment interest is improperly before this court because the Government raised the issue for the first time on appeal.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
We find that this issue is properly before the court notwithstanding the Government}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s failure to raise it previously.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Sovereign immunity implicates a court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s subject matter jurisdiction.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Wood v. Guam Power Auth.}{\insrsid1968208\charrsid6818816 
, 2000 Guam 18, }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  10.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Therefore, the defense of so
vereign immunity can be raised at any time, either by a party or by the court.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Pacific Drilling Inc., v. Marianas Drilling, Inc.}{\insrsid1968208\charrsid6818816 
, Civ. No. 85-0016A, 1985 WL 56585, *3 (D. Guam App. Div. Sept. 27, 1985) (citation omitted); }{\i\insrsid1968208\charrsid6818816 see also Pacific Rock}{\insrsid1968208\charrsid6818816 , 2001 Guam 21 at }{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  18.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The failure of the government to raise the issue does not constitute a waiver.}{
\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See Pacific Drilling Inc.}{\insrsid1968208\charrsid6818816 , 1985 WL 56585, at *3 (citations omitted); }{\i\insrsid1968208\charrsid6818816 see also Samuels v. Tschechtelin, }{
\insrsid1968208\charrsid6818816 763 A.2d 209, 240 (Md. App. 2000) (}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
[T]he law is well established that counsel for the State or one of its agencies may not ... by failure to plead the defense, waive the defense of governmental immunity in the absence of express statutory authorization.}{\insrsid1968208\charrsid6818816 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid6818816 ) (citation omitted).}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\insrsid1968208\charrsid6818816 Turning to the merits of the issue, the Government argues that because there is no statutory waiver of immunity against post-judgment interest, the lower court erred in awarding post-judgment interest to Sumitomo.}{
\insrsid6818816  }{\insrsid1968208\charrsid6818816 We agree.
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [23]}{\insrsid1968208\charrsid6818816 \tab While there exists a statutory waiver of immunity against prejudgment interest for judgments entered for the breach of a procurement contract, there is no similar expr
ess statutory waiver of immunity against post-judgment interest in either the Claims Act or the Procurement Law.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Notwithstanding, Sumitomo argues that we should find an implied waiver of immunity against post-judgment interest.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 We decline to do so.}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [24]}{\insrsid1968208\charrsid6818816 \tab As stated earlier, the Organic Act provides a very specific mechanism by which the government of Guam}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 
s inherent sovereign immunity may be waived.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Under the Organic Act, a waiver of immunity must be in the form of duly enacted legislation.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 48 U.S.C. }{
\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  1421a.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
The Guam Legislature is the sole body tasked with defining the scope of the government}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s immunity, and can broaden or restrict the government}{\insrsid335205\charrsid6818816 '}{
\insrsid1968208\charrsid6818816 s amenability to suit and ultimate liability.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Cf. United States v. N.Y. Rayon Importing Co.}{\insrsid1968208\charrsid6818816 
, 329 U.S. 654, 658-59, 67 S. Ct. 601, 603-04 (1947).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Courts have no authority to supply a consent to the imposition of post-judgment interest which only the Legislature can give.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 Cf. id}{\insrsid1968208\charrsid6818816 . at 660, 67 S. Ct. at 604.}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [25]}{\insrsid1968208\charrsid6818816 \tab 
The Legislature has not hesitated to limit the general waiver of immunity against suit, for example, by crafting shortened statute of limitations periods for claims against the Government.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 See}{
\insrsid1968208\charrsid6818816 ,}{\i\insrsid1968208\charrsid6818816  e.g.}{\insrsid1968208\charrsid6818816 , Title 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1968208\charrsid6818816  5481 (1998).}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 The Legislature has likewise }{\i\insrsid1968208\charrsid6818816 broadened }{\insrsid1968208\charrsid6818816 a private party}{\insrsid335205\charrsid6818816 
'}{\insrsid1968208\charrsid6818816 s recourse against the government, for example, by enacting legislation specifically and clearly allowing for prejudgment interest for procurement contract claims.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 
See}{\insrsid1968208\charrsid6818816 ,}{\i\insrsid1968208\charrsid6818816  e.g.}{\insrsid1968208\charrsid6818816 , 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1968208\charrsid6818816  5475.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Unlike the waiver of immunity against prejudgment interest, the Legislature has not similarly consented to liability for post-judgment interest.}{\insrsid6818816  }
{\insrsid1968208\charrsid6818816 The Legislature}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 
s silence on this issue is determinative in light of the rule of statutory construction that waivers of immunity are to be strictly construed in favor of the sovereign.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Shaw, }{
\insrsid1968208\charrsid6818816 478 U.S. at 318, 319, 106 S. Ct. at 2963, 2964.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Accordingly, we will not imply a waiver of immunity against post-judgment interest in the Claims Act}{
\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s general waiver of immunity against suit for breach of contract.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 Onofrio v. Dept. of Mental Health}{\insrsid1968208\charrsid6818816 
, 584 N.E.2d 619, 620 (Mass. 1992) (holding that because }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
the rules of construction governing statutory waivers are stringent,}{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816 
 the statute waiving immunity for damages could not be interpreted as including an implied waiver of immunity against post-judgment interest) (citation omitted).
\par }{\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [26]}{\insrsid1968208\charrsid6818816 \tab 
Moreover, while we may agree that the availability of post-judgment interest is the better or more equitable rule, our decision today is constrained by the strictures of the Organic Act and strict rules of constructi
on applicable in cases involving issues of sovereign immunity.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Because the Organic Act gives the ability to waive immunity solely to the Legislature, courts lack the authority to find an implied waiver of immunity even in the face of strong public policy favoring such a finding.}{\insrsid6818816  }{
\i\insrsid1968208\charrsid6818816 See Erickson Oil Prod., Inc. v. State}{\insrsid1968208\charrsid6818816 , 516 N.W.2d 755, 759-60 (Wis. Ct. App. 1994);}{\i\insrsid1968208\charrsid6818816  see N.Y. Rayon Importing Co}{\insrsid1968208\charrsid6818816 
., 329 U.S. at 660, 663, 67 S. Ct. at 604, 606.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 To do so would be a usurpation of the role that Congress reserved for the Legislature.}{\insrsid6818816  }{\i\insrsid1968208\charrsid6818816 
See Erickson Oil Prod.}{\insrsid1968208\charrsid6818816 , 516 N.W.2d at 760; }{\i\insrsid1968208\charrsid6818816 cf. Bank of Guam v. Reidy}{\insrsid1968208\charrsid6818816 , 2001 Guam 14, at }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL
 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  22 (emphasizing that courts are not in the business of judicial legislation).}{\cs15\super\insrsid1968208\charrsid6818816 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid1968208 \chftn }{\insrsid1968208  }{\fs20\insrsid1968208 This court is fully cogni
zant of the possible abuse that may result from our holding on the issue of post-judgment interest.  However, we are loath to hastily suppose bad faith on the part of the government and instead presume that the government will undertake to satisfy its leg
a
l obligations in a timely and principled manner.  Our holding today is shaped by adherence to the doctrine of separation of powers.  While we are constrained from encroaching upon the prerogatives of the Legislature, we have no doubt that the Legislature 
will, in the event that our present confidence in the government is compromised, exercise its power to waive governmental immunity in a manner consistent with the public}{\fs20\insrsid335205 '}{\fs20\insrsid1968208 s interest.  }{\i\fs20\insrsid1968208 
See Marx}{\fs20\insrsid1968208 , 866 F.2d at 298 (}{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208 [48 USC }{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208  1421a] . . . , in effect, enables the Legislature of Guam to waive sovereign immunity  . . . when, in the legislature}{\fs20\insrsid335205 '}{\fs20\insrsid1968208 
s opinion, the best interests of both the people and the government of Guam would be served . . . .}{\fs20\insrsid1968208 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1968208 
) (quoting Letter of Roger Ernst, Assistant Secretary of the Interior, to Rep. Wayne N. Aspinall, Chairman, Committee on Interior and Insular Affairs (Mar. 9, 1959), }{\i\fs20\insrsid1968208 reprinted in }{\fs20\insrsid1968208 
1959 U.S. Cong. & Admin. News 2660).}}}{\insrsid1968208 
\par }{\insrsid6818816\charrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [27]}{\insrsid1968208\charrsid6818816 \tab We hold that in the absence of an express statutory waiver of immunity against post-judgment interest, the government is not liable for such interest.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 Accordingly, the trial court erred as a matter of law in awarding post-judgment interest in the instant actions.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid1968208\charrsid6818816 IV.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\b\insrsid6818816 
\par }{\b\insrsid1968208\charrsid6818816 [28]\tab }{\insrsid1968208\charrsid6818816 We hold that 5 GCA }{\insrsid1968208\charrsid6818816 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1968208\charrsid6818816  5475
}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s express waiver of governmental immunity against prejudgment interest applies to judgments awarding breach of contract damages.}{\insrsid6818816  }{\insrsid1968208\charrsid6818816 
Accordingly, we }{\b\insrsid1968208\charrsid6818816 AFFIRM}{\insrsid1968208\charrsid6818816  the trial court}{\insrsid335205\charrsid6818816 '}{\insrsid1968208\charrsid6818816 s award of prejudgment interest.}{\insrsid6818816  }{
\insrsid1968208\charrsid6818816 However, we find that the Legislature has not waived immunity against post-judgment interest and therefore }{\b\insrsid1968208\charrsid6818816 REVERSE}{\insrsid1968208\charrsid6818816  that portion of the judgments and }{
\b\insrsid1968208\charrsid6818816 REMAND}{\insrsid1968208\charrsid6818816  for entry of judgments not inconsistent with this opinion.}{\insrsid6818816 
\par }\pard \qj \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid6818816 
\par }\pard \qc \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 BENJAMIN J.F. CRUZ\tab \tab \tab \tab }{\insrsid6818816  }{\insrsid1968208\charrsid6818816 F. PHILIP CARBULLIDO
\par Justice }{\i\insrsid1968208\charrsid6818816 Pro Tempore}{\insrsid1968208\charrsid6818816 \tab \tab \tab \tab }{\insrsid6818816  }{\insrsid1968208\charrsid6818816 Associate Justice}{\insrsid6818816 
\par }\pard \qj \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid6818816 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid6818816 {\insrsid1968208\charrsid6818816 PETER C. SIGUENZA, JR.
\par Chief Justice
\par }}