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In re Request of Governor Carl T.C. Gutierrez}{\fs20\insrsid15346591 , Opinion \tab Page }{\field{\*\fldinst {\fs20\insrsid15346591 PAGE }}{\fldrslt {\fs20\lang1024\langfe1024\noproof\insrsid11684340 23}}}{\fs20\insrsid15346591  of 43
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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid15346591\charrsid12065940 IN THE SUPREME COURT OF GUAM}{\insrsid12065940 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 IN RE REQUEST OF GOVERNOR CARL T.C. 
\par GUTIERREZ, RELATIVE TO THE ORGANICITY AND
\par CONSTITUTIONALITY OF PUBLIC LAW 26-35}{\insrsid15346591\charrsid12065940 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 Petitioner.}{\insrsid12065940 
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\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 Supreme Court Case No. CRQ01-001}{\insrsid12065940 
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\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 OPINION}{\insrsid12065940 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 Filed:}{\b\insrsid12065940  }{\b\insrsid15346591\charrsid12065940 February 7, 2002}{\insrsid12065940 
\par 
\par }{\b\insrsid15346591\charrsid12065940 Cite as:}{\b\insrsid12065940  }{\b\insrsid15346591\charrsid12065940 2002 Guam 1}{\insrsid12065940 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 Argued and submitted on November 13, 2001
\par Hag\'e5t\'f1a, Guam}{\insrsid12065940 
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\par }{\ul\insrsid15346591\charrsid12065940 Appearing for the Petitioner}{\insrsid15346591\charrsid12065940 :
\par J. Patrick Mason, Esq.
\par Deputy Attorney General
\par Office of the Attorney General
\par Suite 2-200E, Judicial Center Bldg.
\par 120 W. O}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Brien Dr.
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\insrsid15346591\charrsid12065940 
\par }{\ul\insrsid15346591\charrsid12065940 Appearing for the Respondent}{\insrsid15346591\charrsid12065940 :
\par Curtis C. Van de Veld, Esq.
\par Douglas B. Moylan, Esq.
\par Office of the Legislative Counsel
\par 155 Hesler Street
\par Hag\'e5t\'f1a, Guam 96910
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\par }{\insrsid15346591\charrsid12065940 BEFORE:}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 PETER C. SIGUENZA, JR., Chief Justice, JOHN A. MANGLONA, Designated Justice, and RICHARD H. BENSON, Justice }{\i\insrsid15346591\charrsid12065940 
Pro Tempore}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940 
\par 
\par }{\b\insrsid15346591\charrsid12065940 MANGLONA, J.:}{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [1]}{\insrsid15346591\charrsid12065940 \tab Petitioner Governor Carl. T.C. Gutierrez (hereinafter }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
) filed a request for declaratory judgment pursuant to Title 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 4104 asking this court to declare specific provisions of Public Laws 26-35, 26-36, 26-47, 26-49, and Bill No. 205 void under both the Organic Act of Guam and the Constitution of the United States.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
In response, }{\i\insrsid15346591\charrsid12065940 I Mina}{\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 Bente Sais Na Liheslaturan Gu\'e5han}{
\insrsid15346591\charrsid12065940  (hereinafter }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Legislature}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ) asked this court to dismiss the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s petition, or alternatively, find the challenged provisions organic and constitutional in all respects.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We deny the Legislature}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s motion to dismiss, finding that we are properl
y vested with the authority under section 4104 to render declaratory judgments.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 However, we find that the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s request to declare section 7 of Public Law 26-35 unconstitutional does not fall within our gra
nt of jurisdiction under section 4104, and therefore we decline to render judgment on that issue.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
We grant review of the remaining issues presented by the Governor and find certain challenged provisions to be in violation of the separation of powers doctrine.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 I.}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [2]}{\insrsid15346591\charrsid12065940 \tab The Legislature enacted Public Law 26-35 and appendices thereto by legislative override.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Public Law 26-35 is the government of Guam}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s budget for the fiscal year 2002.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Subsequent to passing P.L. 26-35, the Legislature passed and the Governor signed into law Public Laws 26-36, 26-47, 26-49, and Bill No. 205}{\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15346591 \chftn }{\fs20\insrsid15346591 
 Bill Number 205 was passed as Public Law 26-55 by signature of the Governor. }}}{\insrsid15346591\charrsid12065940 , the provisions of which supplement and amend certain portions of the original budget law, P.L. 26-35.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 In its entirety, these laws (hereinafter collectively referred to as the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 Budget Bill}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
) contain extensive and detailed provisions outlining the amount of money appropriated to each division of the government and how the app}{\insrsid12065940 ropriated funds shall be spent.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [3]}{\insrsid15346591\charrsid12065940 \tab On October 4, 2001, the Governor filed the instant action, 
requesting that a declaratory judgment be issued determining the constitutionality of certain provisions of the Budget Bill.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The Governor is requesting that this court invoke its jurisdiction to issue declaratory judgments under 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Section 4104 provides in pertinent part:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
The Governor, in writing, or the Guam Legislature, by resolution, may request declaratory judgments from the Supreme Court as to the interpretation of any law, federal or local, lyin
g within the jurisdiction of the courts of Guam to decide, and upon any question affecting the powers and duties of the Governor and the operation of the Executive Branch, or the Guam Legislature, respectively. The declaratory judgments may be issued only
 where it is a matter of great public interest and the normal process of law would cause undue delay. 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par Title 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104 (1998).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 II.}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 A. \tab Motion to Dismiss}{\b\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [4]}{\insrsid15346591\charrsid12065940 \tab The Legislature claims that 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  4104 is ultra vires and therefore invalid.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Specifically, the Legislature argues that the Organic Act amendment, 48 U.S.C. }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1424-1(a), that authorizes the legislat
ure of Guam to create a Supreme Court, did not authorize the legislature to vest that court with original jurisdiction to consider requests for declaratory judgment.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We reject the Legislature}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s challenge to the organicity of section 4104 and hold that this court has jurisdiction to issue declaratory judgments pursuant to that section.}{\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\sl-240\slmult0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15346591 \chftn }{\fs20\insrsid15346591   The Legislature}{\fs20\insrsid15346591 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 s instant challenge to its power to enact sectio
n 4104 undermines the presumption that the legislature believed it was acting specifically within its power both at the time of enactment and subsequent amendment.  The legislature has previously brought cases before this court under section 4104, and we 
note that the instant attempt to frustrate review on }{\i\fs20\insrsid15346591 ultra vires}{\fs20\insrsid15346591  grounds is at odds with positions it previously made before this court.  }{\i\fs20\insrsid15346591 
Compare In Re Request of the Twenty-Fourth Guam Legislature}{\fs20\insrsid15346591 , CRQ97-001 (Memorandum of Points and Authorities in Support
 of Motion to Withdraw, Sept. 12, 1997) (seeking to withdraw the request for declaratory judgment transmitted to this court on the ground that implicit in the legislature}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 s grant of jurisdiction in section 4104 was the ability of the legislature to withdraw the request), }{\i\fs20\insrsid15346591 with}{\fs20\insrsid15346591  }{\cs16\f39\fs20\insrsid15346591 IN}{
\cs16\b\f39\fs20\insrsid15346591  }{\cs17\i\f39\fs20\insrsid15346591 RE }{\cs16\f39\fs20\insrsid15346591 REQUEST OF}{\cs16\b\f39\fs20\insrsid15346591  }{\cs17\i\f39\fs20\insrsid15346591 I MINA' BENTE SING'KO NA LIHESLATURAN GU\'c5\'c5}{
\f39\fs20\insrsid15346591 HAN , 2001 Guam 3}{\f41\fs20\insrsid15346591 , }{\f41\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f41\fs20\insrsid15346591 
 1 (submitting to this court a request for a declaratory judgment pursuant to 7 GCA }{\f41\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\f41\fs20\insrsid15346591  4104).}}}{
\insrsid15346591\charrsid12065940  
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [5]}{\insrsid15346591\charrsid12065940 \tab The Organic Act provides for the creation of the Supreme Court in general terms:}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\ul\insrsid15346591\charrsid12065940 Local Courts; Appellate Court Authorized}{\insrsid15346591\charrsid12065940 .
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 (a) Composition; establishment of local appellate court.
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
The local courts of Guam shall consist of such trial court or courts as may have been or may hereafter be established by the laws of Guam. On or after the effective date of this Act [January 5, 1985], }{\i\insrsid15346591\charrsid12065940 
the legislature of Guam may in its discretion establish an appellate court.}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par 48 U.S.C. }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1424-1(a) (1987) (emphasis added).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The Legislature argues the Supreme Court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s jurisdiction is limited by the language of the above-referenced section to that of an }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 appellate}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  court.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
However, section 1424-1(a) merely states that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
the legislature of Guam in its discretion may establish an appellate court.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
It does not define appellate court.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Legislature refers to the generic definition of appellate court in Black}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Law Dictionary to support its position that an appellate court does not review matters of first instance and is not a trial court.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 However, reliance on the dictionary definition is unsound in light of the provision of the Organic Act which provides:
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\ul\insrsid15346591\charrsid12065940 Local Court Jurisdiction}{\insrsid15346591\charrsid12065940 . The legislature may vest in the local courts jurisdiction over all causes 
in Guam over which any court established by the Constitution and laws of the United States does not have exclusive jurisdiction. Such jurisdiction shall be subject to the exclusive or concurrent jurisdiction conferred on the District Court of Guam by sect
ion 1424(b) of this title.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par 48 U.S.C. }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1424-1(b) (1987).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
This section of the Organic Act gives the Legislature broad authority to define the jurisdiction of local courts.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Legislature attempts to distinguish }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 local court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  as used in section 1424-1(b) from }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 appellate court}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  as used in section 1424-1(a).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
However, section 1424-1(a) defines }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 local courts}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  as }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 such trial court or courts as may have been or may hereafter be established by the laws of Guam.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Thus, the Supreme Court of Guam, as a court established by the laws of Guam, is included within the definition of }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 local court.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The language of section 1424-1 is not ambiguous.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Because section 1424-1 gives the Legislature the authority to grant jurisdiction to local courts, the
 Legislature may grant jurisdiction to the Supreme Court as it deems fit.}{\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15346591 \chftn }{\fs20\insrsid15346591  The grant of original jurisdiction to issue declaratory judgments to the highest court is not unique to Guam.  }{
\i\fs20\insrsid15346591 See State ex rel. Conrad v. Managhan}{\fs20\insrsid15346591 , 485 P.2d 948, 950 (Mont. 1971) (Supreme Court accepting original jurisdiction to issue a declaratory judgment }{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 because of the urgency of the situation and the need for speedy determination of the controversy}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 ); }{\i\fs20\insrsid15346591 see also Tucker v. S.C. Dept. of Highways & Pub. Trans.}{\fs20\insrsid15346591 
, 424 S.E.2d 468, 469 (S.C. 1992) (Supreme Court determining the constitutionality of a statute pursuant to its original jurisdiction).}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Moreover, unlike other state constitutions which de
fine the respective jurisdiction of each court in that state, the Organic Act does not define or limit the jurisdiction of the Supreme Court of Guam.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Cf. State ex rel. Neer v. Indus. Comm}{
\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 n}{\insrsid15346591\charrsid12065940 , 371 N.E.2d 842, 843 
(Ohio 1978) (holding that because the Ohio constitution limited the court of appeals}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 original jurisdiction to certain matters not including declaratory judgments, the court of appeals lacked jurisdiction to render that type of judgment).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The only limitation placed on the Legislature}
{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s power to grant jurisdiction is in regards to causes within the exclusive jurisdiction of the federal courts.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 48 U.S.C. }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1424-1(b).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
A declaratory judgment under section 4104 is not a cause within the exclusive jurisdiction of the federal courts.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, it is within the Legislature}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Organic Act powers to grant this court such original jurisdiction.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Accordingly, we deny the Legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s motion to dismiss and hold that this court has jurisdiction to consider a request for declaratory judgment pursuant to section 4104.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 B.\tab Declaratory Judgments are Binding}{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [6]}{\insrsid15346591\charrsid12065940 \tab Declaratory judgments issued by this court pursuant to section 4104 are binding.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Although in substance section 4104 most closely resembles the advisory opinion statutes in other jurisdictions, the language of section 4104 grants this court the authority to issue }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 declaratory judgments,}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  and not advisory opinions.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104 cmt. (referring to the advisory opinion clauses in both Florida and Massachusetts as providing the basis of section 4104); }{\i\insrsid15346591\charrsid12065940 
see also}{\insrsid15346591\charrsid12065940  Mel A. Topf, }{\i\insrsid15346591\charrsid12065940 The Jurisprudence of the Advisory Opinion Process in Rhode Island}{\insrsid15346591\charrsid12065940 , 2 }{\scaps\insrsid15346591\charrsid12065940 
Roger Williams U. L. Rev.}{\insrsid15346591\charrsid12065940  207, 213, app. (1997) (providing text of all eleven advisory opinion clauses).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
While recognizing the non-binding and extra-judicial nature of other advisory opinion clauses, we are restricted by the plain language of our statute.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Pangelinan v. Gutierrez}{
\insrsid15346591\charrsid12065940 , 2000 Guam 11, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  23 (}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 In cases involving statutory construction, the plain language of a statute must be the starting point.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Declaratory judgments are uniformly considered binding.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Petition of Kariher}{\insrsid15346591\charrsid12065940 , 131 A. 265, 269, 271 (Pa. 1925).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Therefore, judgments issued by this court under section 4104 are likewise binding.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 III.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 A.\tab The Governor}{\b\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\b\insrsid15346591\charrsid12065940 s Arguments}{\b\insrsid15346591 

\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [7]}{\insrsid15346591\charrsid12065940 \tab 
The Governor argues that, through certain portions of the Budget Bill, the Legislature has violated the separation of powers doctrine by either reserving for itself powers specifically give
n to the Governor in the Organic Act or interfering with the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s ability to perform his constitutional functions.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor points to four specific portions of the Budget Bill as being in violation of the separation of powers doctrine, }{
\i\insrsid15346591\charrsid12065940 to wit}{\insrsid15346591\charrsid12065940 :
\par }\pard \qj \li0\ri0\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \fi-720\li1440\ri0\nowidctlpar\tx-1440\faauto\rin0\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 1. \tab 
Appendix C of Public Law 26-35 and the amendments made thereto, which attempt to set the staffing pattern of the executive branch;
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }\pard \qj \fi-720\li1440\ri0\nowidctlpar\tx-1440\faauto\rin0\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 2.\tab Section 11 of Legislative Bill 205, which mandates that the Child Support 
Division of the Department of Law terminate its current lease and dictates certain terms of a new lease;
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }\pard \qj \fi-720\li1440\ri0\nowidctlpar\tx-1440\faauto\rin0\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 3.\tab 
Public Law 26-35, chapter IV, section 3(a), which imposes a reporting requirement for staffing patterns, and Public Law 26-47, section 2(d), which imposes a reporting requirement for holiday pay; and
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }\pard \qj \fi-720\li1440\ri0\nowidctlpar\tx-1440\faauto\rin0\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 4.\tab 
Public Law 26-47, section 7(b), which sets a specific date for filling the positions of Chief Procurement Officer and Controller. 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par The Governor also argues that chapter IV, section 7 of Public Law 26-35, which imposes liability on accountable officers, is unconstitutionally vague and fails to provide government employees with adequate notice and a hearing in violation of due process.

\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [8]}{\insrsid15346591\charrsid12065940 \tab Because this case is brought pursuant to our original rather than appellate jurisdiction, all issues are decided }{\i\insrsid15346591\charrsid12065940 de novo}{
\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Issues of statutory interpretation and the determination of whether legislation is unconstitutional are questions of law.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Ada v. Gutierrez, }{\insrsid15346591\charrsid12065940 2000 Guam 22, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  10 (analyzing an issue of statutory interpretation); }{\i\insrsid15346591\charrsid12065940 People v. Perez}{\insrsid15346591\charrsid12065940 , 1999 Guam 2, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  6 (analyzing the constitutionality of a statute).
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [9]}{\insrsid15346591\charrsid12065940 \tab Under section 4104, this court has the power to issue declaratory judgments only at the request of the Legislature or the Governor.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Furthermore, to pass jurisdictional muster, a 
party seeking a declaratory judgment must satisfy three requirements: (1) the issue raised must be a matter of great public importance; (2) the issue must be such that its resolution through the normal process of law is inappropriate as it would cause und
ue delay; and (3) the subject matter of the inquiry is appropriate for section 4104 review.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
There are only two subjects appropriate for section 4104 review: questions that require an interpretation of a federal or local law lying within the jurisdicti
on of Guam courts to decide, and questions that affect the powers and duties of the Governor and the operation of the executive branch, or of the Legislature.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Unless a petitioner can satisfy each of the above requirements, a request for a declaratory judgment must be denied.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 
See In re Request of Governor Carl T.C. Gutierrez}{\insrsid15346591\charrsid12065940 
, CRQ96-001, 1996 WL 870740, at * 4 (Guam Oct. 24, 1996) (refusing to issue a declaratory judgment because the petitioner failed to meet one of the requirements under section 4104);}{\i\insrsid15346591\charrsid12065940  In re Opinions of the Justices}{
\insrsid15346591\charrsid12065940 , 49 N.E.2d 252, 255 (Mass. 1943) (citations omitted) (limiting the issuance of advisory opinions to the strict confines defined in the state}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Constitution).
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 B.\tab Liability of Accountable Officers}{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [10]}{\insrsid15346591\charrsid12065940 \tab 
The Governor requests that this court issue a judgment declaring section 7 of Public Law 26-35, which holds accountable officers strictly liable for any loss that occurs in their handling of public funds, to be in violat
ion of due process and thereby unconstitutional.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
More specifically, the Governor alleges that section 7 is too vague and indefinite to provide adequate notice of the proscribed conduct and to be appropriately administered.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Additionally, the Governor argues that the automatic set-off provision of section 7 does not provide employees with sufficient notice and hearing to satisfy procedural due process standards.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [11]}{\insrsid15346591\charrsid12065940 \tab The threshold inquiry for any declaratory judgment request is whether the petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s request qualifies for review under section 4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s request must satisfy the three jurisdictional requirements set forth above.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
We will turn first to the question of whether the Governor has presented this court with a request whose subject matter falls within the purview of section 4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
As previously noted, section 4104 only permits the Governor to ask the Supreme Court for: (1) an interpretation of an exist
ing law that is within its jurisdiction to decide; or (2) an answer to any question affecting his powers and duties as governor and the operation of the executive branch. }{\b\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 1.\tab Interpretation}{\b\insrsid15346591 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [12]}{\insrsid15346591\charrsid12065940 \tab This court must initially determine whether a request seeking to declare a statute }{\i\insrsid15346591\charrsid12065940 unconstitutional}{
\insrsid15346591\charrsid12065940  falls within the meaning of section 4104 as a request for an }{\i\insrsid15346591\charrsid12065940 interpretation}{\insrsid15346591\charrsid12065940  of that statute.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 We find that it does not.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 While the line separating constitutionality from interpretation may be fine, it is a desirable line to draw.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 This court is primarily a court of appeals, with limited original jurisdiction.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Sorenson v. Swanson}{\insrsid15346591\charrsid12065940 
, 147 N.W.2d 620, 624-25 (Neb. 1967) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 This is a court the primary object of wh
ich is to review cases . . . .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 It is an appellate tribunal, and it is given original jurisdiction in a few limited cases, most of which are extraordinary remedies . . . .}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Thus, grants of original jurisdictio
n, as over declaratory judgments in section 4104, should be read literally and construed narrowly.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See State ex rel. Wieland v. Moore}{\insrsid15346591\charrsid12065940 
, 561 N.W.2d 230, 236 (Neb. 1997) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 if the drafters of [the article] had inten
ded to convey original jurisdiction upon this court for actions involving the constitutionality of a statute, the drafters surely would have included such actions in [the article].}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [13]}{\insrsid15346591\charrsid12065940 \tab As noted, the substan
ce of section 4104 resembles the advisory opinion laws of other jurisdictions, particularly in that the questions presented pursuant to section 4104 may only be brought by the Governor or Legislature.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 
The few appellate courts that are permitted to render advisory opinions express a reluctance to do so by strictly construing their advisory opinion clauses and refusing requests that do not fall squarely within their clauses}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  terms.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See In re Opinion of the Justices}{
\insrsid15346591\charrsid12065940 , 49 N.E.2d at 255; }{\i\insrsid15346591\charrsid12065940 see also In re Advisory Opinion to the Governor}{\insrsid15346591\charrsid12065940 , 113 So. 2d 703, 705 (Fla. 1959) (}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 The corridor of organic authority for rendering advisory opinions is indeed a narrow one . . . .}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ); }{\i\insrsid15346591\charrsid12065940 see also Opinion of the Justices}{\insrsid15346591\charrsid12065940 
, 413 A.2d 1245,1247-48 (Del. 1980); }{\i\insrsid15346591\charrsid12065940 Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 105 A.2d 454, 456 (Me. 1952); }{\i\insrsid15346591\charrsid12065940 Opinion to the Governor}{
\insrsid15346591\charrsid12065940 , 284 A.2d 295, 296 (R.I. 1971).}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 But see In re Advisory Opinion (Chief Justice)}{\insrsid15346591\charrsid12065940 
, 507 A.2d 1316, 1319-20 (R.I. 1986) (issuing an advisory opinion despite the procedural deficiencies of the petition).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The fear is that by involving the courts in a political struggle between the other two branches, justices may find themselves }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 participating in a realignment of governmental power by being compelled by the executive branch to review the work of the legislative branch.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Topf, }{\i\insrsid15346591\charrsid12065940 supra}{\insrsid15346591\charrsid12065940 , at 222 (citation omitted).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Involvement by the courts also calls into question judicial independence and invites the legislature and executive to pass on the responsibility of independently assessing the constitutionality of their acts.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940  at 223.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [14]}{\insrsid15346591\charrsid12065940 \tab Strict construction should be particularly applied with regard to section 4104 because the statute is a means for parties to bypass the normal processes of law.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Issues regarding the constitutionality of a statue, whenever possible, ought be left to the normal processes of law.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
As recognized by the Supreme Court of Florida:}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
This court has many times declined to pass upon the constitutionality of a statute in rendering advisory opinions, particularly where such a test can best be accomplished in adversary proceedings appropriately briefed and buttressed by argument of cou
nsel.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
This policy is the product of the historical recognition of the presumed constitutionality of an act of the Legislature until such presumption is set at rest by a court of competent jurisdiction in a proper adversarial proceeding.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\i\insrsid15346591\charrsid12065940 In re Advisory Opinion to the Governor}{\insrsid15346591\charrsid12065940 , 509 So. 2d at 301 (Fla. 1987); }{\i\insrsid15346591\charrsid12065940 see also Opinion to the House of Representatives}{
\insrsid15346591\charrsid12065940 , 264 A.2d 920, 921 (R.I. 1970) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
every reasonable intendment is made in favor of the constitutionality of a duly enacted statute and that such a statute is presumed to be constitutional until the contrary is established in appropriate litigation}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [15]}{\insrsid15346591\charrsid12065940 \tab Furthermore, determining matters through a proceeding that bypasses
 the normal litigation process fails to represent interests and protect rights as would an interested party in a fully litigated case.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Topf}{\insrsid15346591\charrsid12065940 ,}{
\i\insrsid15346591\charrsid12065940  supra}{\insrsid15346591\charrsid12065940 ,}{\i\insrsid15346591\charrsid12065940  }{\insrsid15346591\charrsid12065940 at 227 (citations omitted) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 A briefing from an interested party in an advisory opinion proceeding }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 sometimes is not so effective or so well-focused as that which follows thorough examination of the issues through the trial process.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ); }{
\i\insrsid15346591\charrsid12065940 see also Advisory Opinion}{\insrsid15346591\charrsid12065940 , 113 So. 2d at 705 (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 This court has many times declined to pass upon the constitutionality of a statute in rendering advisory opinio
ns, particularly where such a test can best be accomplished in adversary proceedings appropriately briefed and buttressed by argument of counsel.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The benefits of leaving matters to be fully litigated by interested parties is demonstrated by the well established }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 case or controversy}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  requirement.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Given the above-mentioned policies and in light of the fact that our statute, 
unlike the advisory opinion laws of other jurisdictions, permits binding judgments to be issued, section 4104 should be construed as strictly and narrowly as possible.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [16]}{\insrsid15346591\charrsid12065940 \tab We recognize that there are evils which the issuance of a declaratory judgment pursuant to section 4104 can avoid.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 
See}{\insrsid15346591\charrsid12065940  7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104 cmt.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Specifically, hearing a matter before it has ripened into a true case or controversy }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 avoid[s] the necessity of creating harm to some party in order to have a decision.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940 
 }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .; }{\i\insrsid15346591\charrsid12065940 see also}{\insrsid15346591\charrsid12065940  Note, }{\i\insrsid15346591\charrsid12065940 
Advisory Opinions on the Constitutionality of Statutes}{\insrsid15346591\charrsid12065940 , 69 }{\scaps\insrsid15346591\charrsid12065940 Harv. L. Rev.}{\insrsid15346591\charrsid12065940 
 1302, 1304-05 (1956) (discussing how an advisory opinion can prevent the enactment of an unconstitutional statute, avoiding both the time and expense of challenging litigation and reliance by the general public).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 However, we also recognize the dangers inherent in turning the courtroom into a forum for political debate.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
This court is not the arena within which the executive and legislative branches should seek to wage their political battles.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, we approach section 4104 as most courts have approa
ched their respective advisory opinion laws in the past, cautiously and conservatively.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
While we will not turn away from reviewing those issues properly before us, neither will we permit matters that fall outside the plain language of section 4104 to be brought in on the shoulders of broad interpretation.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [17]}{\insrsid15346591\charrsid12065940 \tab Here, the Governor is asking the court, not to draw meaning from the language of section 7, but to declare the provision unconstitutional and thereby void in its entirety.}
{\insrsid12065940  }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
An unconstitutional act is not a law; it confers no rights; it imposes no duties; it affords no protection; it creates no office; it is, in legal contemplation, as inoperative as though it had never been passed.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 In re Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 168 N.E. 536, 538 (Mass. 1929) (quoting }{
\i\insrsid15346591\charrsid12065940 Norton v. Shelby County}{\insrsid15346591\charrsid12065940 , 118 U.S. 425, 442, 6 S. Ct. 1121, 1125 (1886)).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 By contrast, interpretation, in its plain meaning, is }
{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
[t]he process of determining what something, esp. the law or a legal document, means; the ascertainment of meaning.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  
}{\scaps\insrsid15346591\charrsid12065940 Black}{\scaps\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\scaps\insrsid15346591\charrsid12065940 s Law Dictionary}{
\insrsid15346591\charrsid12065940  824 (7th ed. 1999).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 When interpreting a statute, the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s task is to determine the intent of the legislature and give the statute meaning without altering or amending the statute}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s scope.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See In re Advisory Opinion to the Governor}{\insrsid15346591\charrsid12065940 
, 504 A.2d 456, 459 (R.I. 1986) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
Our task in construing any statute is to effectuate and establish the intent of the Legislature.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}
{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We find that a request challenging the constitutionality of a statute does not present the same inquiry as a request seeking the interpretation of a statute.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Thus, the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s r
equest for a judgment declaring section 7 unconstitutional does not qualify as a request for an interpretation of law under section 4104. }{\b\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 2.\tab Powers and Duties
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [18]}{\insrsid15346591\charrsid12065940 \tab Alternatively, the Governor may obtain review of an issue under section 4104 if his request
 affects his powers and duties as Governor and the operation of the Executive Branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Here, the Governor is challenging the constitutionality of section 7 of Public Law 26-35 in its entirety.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The scope of section 7 includes }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
all government of Guam agencies including the Legislative, Executive and Judicial Branches and all autonomous and semi-autonomous agencies which are authorized Certifying Officers and Accountable Officers in General.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Exhibit A, vol. 1, p. 44 (Public Law 26-35).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The question that emerges from the Governor}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s request is whether the Governor has standing to present to this court questions involving other branches of government or questions on behalf of subordinate agencies within his own branch.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [19]}{\insrsid15346591\charrsid12065940 \tab Section 4104 explicitly requires that the request from the Governor affect his powers and duties as Governor }{\i\insrsid15346591\charrsid12065940 and}{
\insrsid15346591\charrsid12065940  his operation of the Executive branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104; }{\i\insrsid15346591\charrsid12065940 see also Gutierrez}{\insrsid15346591\charrsid12065940 , 1996 WL
 870740, at * 1 (analogizing to the Massachusetts requirement that issues presented }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
relate to a presently existing governmental duty borne by the branch of the government that requests the opinion.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Other courts authorized to issue advisory opinions uniformly impose a similar requirement, requiring that the question posed directly relate to the duties of the requesting authority presently awaiting performance, and th
at the action of the requesting authority depend on the advice rendered by the court.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 105 A.2d at 456 (finding that a }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 solemn occasion}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  does not exist unless the body making the inquiry has occasion to consider and act upon the question submitted in its exercise of powers); }{
\i\insrsid15346591\charrsid12065940 see also Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 238 So. 2d 326, 328 (Ala. 1970) (holding that the advisory provision does not authori
ze Justices to give an opinion where no action of the requesting party is dependent on it);}{\i\insrsid15346591\charrsid12065940  Advisory Opinion (Chief Justice)}{\insrsid15346591\charrsid12065940 
, 507 A.2d at 1319 (requiring that the question posed for an advisory opinion have some relationship to the official duties of the requesting branch and bear upon a present constitutio}{\insrsid12065940 nal duty awaiting performance).}{
\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [20]}{\insrsid15346591\charrsid12065940 \tab The significance of this requirement is that it precludes the Governor from requesting a declaratory judgment on a question that only concerns another 
branch of the government or that solely impacts subordinate executive officers and agencies.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104 cmt. (noting that one branch may not request opinions as to the operation of another branch where tha
t operation does not impinge on the requesting branch}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s operations); }{
\i\insrsid15346591\charrsid12065940 see also Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 105 A.2d at 456-57 (stating that the Governor does not have authority to seek an advisory opinions solely on behalf of }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 subordinate executive officers, agencies, boards, or instrumentalities of the state . . . .}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ); }{\i\insrsid15346591\charrsid12065940 Opinion to the Governor}{\insrsid15346591\charrsid12065940 
, 284 A.2d at 297 (finding that city officials have no standing under the advisory opinion clause to seek an opinion of the court and cannot circumvent that limitation by seeking an opinion through the Governor).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Moreover, the Governor is precluded from obtaining review of questions under section 4104 if those questions involve the operation of another branch of government and that operation does not impinge on the Governor}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s powers and duties as set forth in the Organic Act.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [21]}{\insrsid15346591\charrsid12065940 \tab In the matter before us, the scope of section 7 is limited on its face to government agencies.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Thus, the Governor}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
powers and duties, as enumerated in the Organic Act, are not affected nor dependent on the judgment of this court.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See }{\insrsid15346591\charrsid12065940 
48 U.S.C. 1422 (1987) (vesting in the Governor general supervisory powers over executive branch agencies and instrumentalities and the responsibility for the faithful execution of laws); }{\i\insrsid15346591\charrsid12065940 
see also Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 105 A.2d at 456-57 (finding that the power of the governor as }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 supreme executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 or his duty to faithfully execute the laws does not make questions as to the decisions and actions of subordinate agencies questions to be acted upon by the governor).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 In short, section 7 is too}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 narrow for the Governor to claim standing to challenge the section under 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s challenge to section 7 simply does not amount to a question that affects his powers and duties and the operation of the executive branch.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [22]}{\insrsid15346591\charrsid12065940 \tab Accordingly, the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s challenge to the constitutionality of section 7 is not a matter appropriate for}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 section 4104 review.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The Governor is neither asking this court for an interpretation of a law nor does his request affect his powers and duties as Governor and his operation of the executive branch.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Therefore, we decline to address the merits of the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s challenge to section 7 as the issue presented is not within this court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s jurisdiction under section 4104.}{\b\insrsid15346591\charrsid12065940 
\par 
\par C.\tab Separation of Powers
\par }{\b\insrsid12065940 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 1.\tab Jurisdiction}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [23]}{\insrsid15346591\charrsid12065940 \tab 
The Governor raises four separation of powers challenges to the Budget Bill, each of which allege that the Legislature has either reserved for itself powers specifically given to the Governor in the Organic Act or interfered with the Governor}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s ability to perform his constitutional functions.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 A preliminary issue is whether the issues raised by the Governor qualify for review under section 4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 As stated previously, this court}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s original jurisdictio
n under section 4104 may only be invoked if the three requirements of section 4104 are met.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [24]}{\insrsid15346591\charrsid12065940 \tab One requirement under section 4104 concerns the subject matter before the court.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
In the instant case, the question is whether the challenges asserted by the Governor are the type of challenges that are cognizable under section 4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We find that they are, as questions that }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 affect[] the powers and duties of the Governor and the operation of the Executive Branch . . . .}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor alleges that provisions of the Budget Bill violate the separation of powers doctrine.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 This issue is undoubtedly the type of matter that can be addressed in a request for declaratory judgment under section 4104.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The comment to 7 GCA 
}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104 provides: 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 [T]he language [of section 4104] permits the Governor to request opinions as the operation of t
he Executive Branch, including questions involving separation of powers, and the Legislature to request opinions on the operation of that Branch, but does not permit one Branch to request opinions as to the operation of the other where that operation does
 not impinge on the requesting branch}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s operations. The purpose of this limitation is to avoid one branch trying to regulate the other through the courts.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104 cmt.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [25]}{\insrsid15346591\charrsid12065940 \tab As recognized in the comment, section 4104 contains limiting language, and the court is only permitted to address questions that involve allegations that one branch}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s actions }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 impinge}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 on the other branch}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s operations.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Because the Governor alleges that provisions of the Budget Bill impinge upon the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s powers of appointment, removal, and general management of executive branch, the separation of powers issues fall within the purview of section 4104.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Cf. Opinion of the Justices}{
\insrsid15346591\charrsid12065940 , 266 A.2d 823, 825 (N.H. 1970) (determining that the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s request for an opinion on whether the legislature has usurped executive functions was a proper subject for an advisory opinion in that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 [t]he questions concern the executive duties of the Governor . . . and}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 . . . an opinion will assist in the performance thereof}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ); }{\i\insrsid15346591\charrsid12065940 In re Opinion of the Justices}{
\insrsid15346591\charrsid12065940 , 532 A.2d 195, 196 (N.H. 1987) (giving an advisory op
inion on whether provisions of the appropriations bill, which require prior legislative approval of executive contracts as a condition to appropriation, constitute an unconstitutional delegation of executive powers to the legislative branch).}{
\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [26]}{\insrsid15346591\charrsid12065940 \tab A second jurisdictional requirement under section 4104 is that the matter before the court be one of great public interest.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
[P]ublic interest . . . signifies an importance of the issue to the body politic, the community, in the sense that the operations of the government may be substantially affected one way or the other by the issue}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s resolution.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Gutierrez}{\insrsid15346591\charrsid12065940 , 1996 WL 870740, at * 1.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 In }{\i\insrsid15346591\charrsid12065940 
In re Request of Governor Gutierrez}{\insrsid15346591\charrsid12065940 , this court analogized the section 4104 }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 great public interest}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 requirement to the requirement in the Massachusetts advisory opinion law that the advisory opinions be limited to }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 important questions of law, and upon solemn occasion.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . (citations omitted).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Massachusetts courts have construed this requirement to mean that }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 the issue presented must be significant in substance and relate to a presently exis
ting governmental duty borne by the branch of government that requests the opinion.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [27]}{\insrsid15346591\charrsid12065940 \tab In }{\i\insrsid15346591\charrsid12065940 In re Request of Governor Gutierrez}{\insrsid15346591\charrsid12065940 
, the Governor requested that the court render a declaratory judgment regarding the constitutionality of a law which established an elected board of education.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 
.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor argued that the law usurped the authority of the Governor over education because it would vest the management of the Department of Education in the hands of an elected board.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The court determined that the issue presented, that is, the organicity of the elected school board law, was a matter of great public interest because it was }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 of consequence in terms of governmental functions and resources.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . at * 2.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 This conclusion was based on the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s finding that Department of Education was one of the largest departments in t
he government and its mission directly impacted nearly all of the families of Guam.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [28]}{\insrsid15346591\charrsid12065940 \tab In the instant case, the separation of powers issues that the Governor presents involve allegations that the Legislature has either exceeded its po
wer to appropriate and has usurped the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s power to administer appropriated funds or impermissibly interfered with the operation of the executive branch.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The executive branch of the government employs tho
usands of employees who are assigned wide-ranging tasks for the ultimate purpose of executing the laws of Guam.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Similar to the challenge in }{\i\insrsid15346591\charrsid12065940 
In re Request of Governor}{\insrsid15346591\charrsid12065940 , the instant challenges to the organicity and constitutionality of provisions of the Budget Bill, as they relate to the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s ability to manage the executive branch, are matters of }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 great public importance}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  a
s they are }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 of consequence in terms of governmental function and resources.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{
\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15346591 \chftn }{
\fs20\insrsid15346591  Massachusetts courts have found this type of separation of powers challenge to be an }{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 
important questions of law}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 
 and the issue has therefore been accepted for consideration by the Massachusetts courts pursuant to their advisory opinion law.  }{\i\fs20\insrsid15346591 Cf. Opinion of the Justices to the Governor}{\fs20\insrsid15346591 
, 341 N.E.2d 254 (Mass. 1976) (agreeing to render an advisory opinion on whether the legislature}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 
s action was an improper usurpation of the executive}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 s power of expenditure).  }}}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Furthermore, the issues relate to a }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
presently existing governmental duty borne by the branch of Government requesting the opinion.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . at * 1.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Specifically, the Governor has standing to assert the issues presented because they directly relate to his authority to administer appropriated funds for the effective running of the executive branch.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id. }{\insrsid15346591\charrsid12065940 at * 2.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [29]}{\insrsid15346591\charrsid12065940 \tab The final jurisdictional requirement under section 4104 is that the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 normal process of law would cause undue delay.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  4104.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 An analysis of this requirement requires the court to }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
estimate as a practical matter, the relative difference in speed for an issue depending on whether it travels the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 normal processes of law}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 route, or that provided by . . . [section] 4104.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Gutierrez}{
\insrsid15346591\charrsid12065940 , 1996 WL 870740, at * 2.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Specifically, the anticipated delay through the normal processes of law must be }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 excessive or inappropriate.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We find that the undue delay requirement is met with regard to the separation of powers issues p
resently before us.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Because the budget for the government of Guam is enacted annually, issues regarding the constitutionality of a particular aspect of a budget bill uniquely require speedy resolution; therefore, it would be inappropriate for such issues 
to be resolved through the protracted litigation process.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See id}{\insrsid15346591\charrsid12065940 . (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 7 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 4104 was intended to provide a fast track for the initiation of cases before the Supreme Court of Guam so that rulings could be obtained on important issues of law without time consuming litigation in the inferior court.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [30]}{\insrsid15346591\charrsid12065940 \tab In accordance with the foregoing, we find that all three jurisdictional re
quirements under section 4104 are met with regard to the separation of powers issues raised by the Governor.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, we may properly reach the merits of each issue.
\par }{\b\insrsid12065940 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 2.\tab Separation of Powers Doctrine}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [31]}{\insrsid15346591\charrsid12065940 \tab As previously discussed, the Governor presents four separation of powers challenges to the Budget Bill: (1) that Appendix }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 C}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  of P.L. 26-35 and Amendments thereto violate the doctrine of separation of p
owers in that the legislature has attempted to set the staffing pattern of the executive branch; (2) that section 11 of Bill 205, which dictates the terms of a lease of office space for Family Division of the Department of Law, violates the separation of 
p
owers doctrine; (3) that the staffing pattern reporting requirements of P.L. 26-35, chapter IV, section 3(a), and holiday pay reporting requirements of P.L. 26-47, section 2(d), violate the separation of powers doctrine; and (4) that P.L. 26-47, section 7
(b), which sets a specific date for filling the positions of Chief Procurement Officer and Controller, violates the separation of powers doctrine.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [32]}{\insrsid15346591\charrsid12065940 \tab Each issue enumerated above requires a separate analysis, but turns on the basic principle
 that, under the Organic Act, the government of Guam is comprised of three separate but co-equal branches of government.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See }{\insrsid15346591\charrsid12065940 48 U.S.C. }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1421a (1992) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 The government of Guam shall consist of three branches, executive, legislative and judicial . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Thus, implicit in the language of the Organic Act is the traditional concept of separation of powers.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Pangelinan}{\insrsid15346591\charrsid12065940 , 2000 Guam 11 at }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  31; }{\i\insrsid15346591\charrsid12065940 see also Hamlet v. Charfauros}{\insrsid15346591\charrsid12065940 , 1999 Guam 18, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  9 (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
By its very language, therefore, the Organic Act requires application of the constitutional doctrine of separation of powers to government of Guam functions.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ) (citation omitted).}{\insrsid12065940 
\par 
\par }{\b\insrsid15346591\charrsid12065940 [33]}{\insrsid15346591\charrsid12065940 \tab The separation of powers doctrine exists to }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 prevent[ ] the abuses that can flow from centralization of power.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Mo. Coalition for Env}{\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 t v. Joint Comm. on Admin. Rules}{
\insrsid15346591\charrsid12065940 , 948 S.W.2d 125, 132 (Mo. 1997) (en banc) (citation omitted); }{\i\insrsid15346591\charrsid12065940 see also Book v. State Office Bldg. Comm}{\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 n}{\insrsid15346591\charrsid12065940 , 149 N.E.2d 273, 293 (Ind. 1958) (recognizing that the purpose of separating the powers of each branch is }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 to preclude a commingling of these essentially different powers of the government in the same hands}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ) (citation omitted).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The concentration of the separately delineated powers in the hands of one branch }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
may justly be pronounced the very definition of tyranny.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Beckert v. Warren}{
\insrsid15346591\charrsid12065940 , 439 A.2d 638, 642 (Sup. Ct. Pa. 1981). 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [34]}{\insrsid15346591\charrsid12065940 \tab In }{\i\insrsid15346591\charrsid12065940 People v. Perez}{\insrsid15346591\charrsid12065940 , 1999 Guam 2, this court adopted the U.S. Supreme Court}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s standard for determining whether a separation of powers violation exists.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The court provided:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 In determining whether the Act disrupts the pro
per balance between the coordinate branches, the proper inquiry focuses on the extent to which it prevents the Executive Branch from accomplishing its constitutionally assigned functions. Only where the potential for disruption is present must we then det
ermine whether the impact is justified by an overriding need to promote objectives within the constitutional authority of Congress. 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\i\insrsid15346591\charrsid12065940 Perez}{\insrsid15346591\charrsid12065940 , 1999 Guam 2 at }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 17 (citations omitted).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Based on this standard, the court established a two-part test: }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 (1) whether the statutory provision prevents the accomplishment of constitutional functions and (2) if so, whether the disruptive impact is justified by any overriding constitutional need.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [35]}{\insrsid15346591\charrsid12065940 \tab 
We recognize that, under the separation of powers doctrine, one branch of government is prohibited from either delegating its enumerated powers to another branch of the gove
rnment or aggrandizing its powers by reserving for itself the powers given to another branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Santos v. Calvo}{\insrsid15346591\charrsid12065940 
, Civ. No. 80-0223A, 1982 WL 30790, at * 3 (D. Guam App. Div. Aug. 11, 1982); }{\i\insrsid15346591\charrsid12065940 Territorial Prosecutor v. Superior Court}{\insrsid15346591\charrsid12065940 , Civ. No. 82-0215, 1983
 WL 30224, at * 5 (D. Guam App. Div. May 26, 1983); }{\i\insrsid15346591\charrsid12065940 Communications Workers of Am. v. Florio}{\insrsid15346591\charrsid12065940 , 617 A.2d 223, 232 (N.J. 1992).}{\cs15\super\insrsid15346591\charrsid12065940 \chftn 
{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15346591 \chftn }{\fs20\insrsid15346591  }{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 If, in the opinion of the people, the distribution or modification of the co
nstitutional powers be in any particular wrong, let it be corrected by an amendment in the way which the constitution designates.  }{\i\fs20\insrsid15346591 But let there be no change by usurpation}{\fs20\insrsid15346591 
; for, though this, in one instance, may be the instrument of good, it is the customary weapon by which free governments are destroyed.}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{
\fs20\insrsid15346591   }{\i\fs20\insrsid15346591 Book}{\fs20\insrsid15346591 , 149 N.E.2d at 295 (citing George Washington}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 
s Farewell Address) (emphasis added). }}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 At least one court has noted that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 the }{\i\insrsid15346591\charrsid12065940 taking}{\insrsid15346591\charrsid12065940  of power is more prone to abuse and therefore warrants an especially careful scrutiny.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Communication Workers}{\insrsid15346591\charrsid12065940 , 617 A.2d at 232 (emphasis added).}{\insrsid12065940  }
{\insrsid15346591\charrsid12065940 Even absent a finding that one branch has usurped a power exclusively reserved for another branch, a separation of powers violation may be found if }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 one branch }{\i\insrsid15346591\charrsid12065940 unduly}{\insrsid15346591\charrsid12065940  interferes with another branch so that the other branch cannot }{
\i\insrsid15346591\charrsid12065940 effectively}{\insrsid15346591\charrsid12065940  exercise its constitutionally assigned powers.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Armadillo Bail Bonds v. State}{\insrsid15346591\charrsid12065940 , 802 S.W.2d 237, 239 (Tex. Crim. App. 1990) (citations omitted); }{\i\insrsid15346591\charrsid12065940 see}{
\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 Perez}{\insrsid15346591\charrsid12065940 , 1999 Guam 2 at }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940  17. 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [36]}{\insrsid15346591\charrsid12065940 \tab As articulated in }{\i\insrsid15346591\charrsid12065940 Territorial Prosecutor v. Superior Court}{\insrsid15346591\charrsid12065940 , }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 the legislature may not enact a law encroaching upon the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s authority and powers which are mandated by the Organic Act.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Territorial Prosecutor}{\insrsid15346591\charrsid12065940 , 1983 WL 30224, at * 5, 6 (invalidating section 7100(b) of the Territorial Prosecutor}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Act because it }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 impermissibly encroaches upon the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s removal powers . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 This limitation on the Legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s power is specifically set forth in the Organic Act, which prohibits the Legislature from enacting laws that are }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 inconsistent with the provisions of this }{\i\insrsid15346591\charrsid12065940 chapter}{\insrsid15346591\charrsid12065940  and the laws of the United States applicable to Guam.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 48 U.S.C. }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1423a (1992) (emphasis added).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 chapter}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 referred to is the Organic Act; therefore, the Legislature is prohibited from enacting laws that are inconsistent with the Organic Act, including the Organic Act}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s grant of power to the other branches of the government.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See id.}{\insrsid15346591\charrsid12065940 ; }{
\i\insrsid15346591\charrsid12065940 see also Territorial Prosecutor}{\insrsid15346591\charrsid12065940 , 1983 WL 30224, at * 5 (discussing a Ninth Circuit case that held that section 1423a limits the legislative power to enact legislation to sub
jects not inconsistent with the Organic Act).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The problems inherent in allowing the Legislature to enact laws which encroach upon the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s or Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s powers are evident:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
If . . . [the courts] were to permit the legislature to do so, not only would it render the concept of the separation of powers meaningless and be inconsistent with mandate of the Organic Act, but it could possibly result in the
 Governor being divested of his executive authority and power at the whim of the legislature.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\i\insrsid15346591\charrsid12065940 Territorial Prosecutor}{\insrsid15346591\charrsid12065940 , 1983 WL 30224, at * 5.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [37]}{\insrsid15346591\charrsid12065940 \tab Thus, in determining whether the challenged provisions of the Budget Bill violate the separation of powers doctrine, it is necessary to determine the nature of each branch}
{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s respective powers as set forth in the Organic Act.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [38]}{\insrsid15346591\charrsid12065940 \tab Under the Organic Act, the legislative power is vested in the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 Legislature of Guam.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 48 U.S.C. }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1423a.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 As stated earlier, the Legislature}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s power to legislate extends }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 to all rightful subjects of legislation not inconsistent with the provisions of this chapter and the laws of the United States applicable to Guam.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Furthermore, the power to appropriate money is expressly reserved to the Legislature.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 48 U.S.C. }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1423j(a) (1992) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
Appropriations, except as otherwise provided in this chapter, and except such appropriations as shall be made from time to time by the Congress of the United States, shall be made by the legislature.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Thus, pursuant to the Organic Act, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 the Legislature has plenary or absolute power over appropriations . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Santos}{\insrsid15346591\charrsid12065940 , 1982 WL 30790, at * 3.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The legislative power of appropriation is defined as }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
the authority to set apart from the public revenue a certain sum of money for a specified object . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Opinion of the Justices to the Senate}{\insrsid15346591\charrsid12065940 , 376 N.E.2d 1217, 1220-21 (Mass. 1978) (citations and internal quotations omitted).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The power of appropriation encompasses the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 principle . . . that it is for the Legislatu
re, and not the executive branch, to determine finally which social objectives or programs are worthy of pursuit.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . at 1221.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [39]}{\insrsid15346591\charrsid12065940 \tab The Organic Act provides that the executive power of Guam is vested in the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Governor of Guam.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 48 U.S.C. }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  1422 (1992).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s powers
 and duties, as specifically enumerated in the Organic Act include:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
[The] general supervision and control of all the departments, bureaus, agencies, and other instrumentalities of the executive branch of the government of Guam. . . . He shall appoint, and 
may remove, all officers and employees of the executive branch of the government of Guam, except as otherwise provided in this or any other Act of Congress, or under the laws of Guam, and shall commission all officers he may be authorized to appoint. He s
hall be responsible for the faithful execution of the laws of Guam and the laws of the United States applicable in Guam.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Thus, under the Organic Act, it is the duty of the Governor to enforce the laws as enacted by the Legislature and Congress, and,
 in pursuit of the fulfillment of that duty, the Governor has the power to appoint executive employees and supervise the departments of the executive branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 
.; }{\i\insrsid15346591\charrsid12065940 see also Santos}{\insrsid15346591\charrsid12065940 , 1982 WL 30790, at * 3.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s duties to supervise and control the executive branch for the purpose of the proper execution of the laws includes the power of expenditure.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 See Anderson v. Lamm}{\insrsid15346591\charrsid12065940 , 579 P.2d 620, 623 (Colo. 1978) (en banc).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 In order to fulfil this duty to faithfully execute the laws, the executive has the authority to administer the funds appropriated by the legislature for programs enacted by the legislature.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 [T]he activity of spending is essentially an executive task,}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 Opinion of the Justices to the Senate}{\insrsid15346591\charrsid12065940 
, 376 N.E.2d at 1222, and }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 [t]he nat
ure of . . . [the executive] office requires that the Governor have authority to use discretion in applying the energies of the executive branch and the resources of the . . . [state], as such resources are made available by the Legislature, to achieve th
e purposes or objectives of the laws.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 
. at 1221.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [40]}{\insrsid15346591\charrsid12065940 \tab 
Having identified the respective powers of the Governor and Legislature as set forth in the Organic Act, we nevertheless acknowledge that the powers of each respective branch inevitably overlap to a certain extent.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 See Opinion of Justices}{\insrsid15346591\charrsid12065940 , 266 A.2d at 826; }{\i\insrsid15346591\charrsid12065940 see}{\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 also}{
\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 In re Opinion of the Justices,}{\insrsid15346591\charrsid12065940  341 N.E.2d 254, 256 (Mass. 1976) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Flexibility in the allocation of functions may sometimes be permissible, but only if it creates no interference by one department with the power of another.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Courts have found it difficult to characterize the exact relationship of each branch}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s powers and have resorted to doing so on a case-by-case basis.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Anderson}{\insrsid15346591\charrsid12065940 , 579 P.2d at 623;}{\i\insrsid15346591\charrsid12065940  see also Opinion of Justices}
{\insrsid15346591\charrsid12065940 , 266 A.2d at 825-26; }{\i\insrsid15346591\charrsid12065940 Commonwealth v. Sutley}{\insrsid15346591\charrsid12065940 , 378 A.2d 780, 783 (Pa. 1977) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 [T]here may be some areas where the dividing lines between the respective responsibilities of the three branches may be difficult to define.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
When a statute is challenged as violating the separation of powers doctrine, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 the court mus
t search for a usurpation by one department of the powers of another department . . . [from] the specific facts and circumstances presented.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 State ex rel. Schneider v. Bennet}{\insrsid15346591\charrsid12065940 , 547 P.2d 786, 792 (Kan. 1976).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Th
erefore, each issue the Governor raises in the instant case requires a separate analysis with reference to the nature of the powers of each respective branch as described above.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [41]}{\insrsid15346591\charrsid12065940 \tab An analysis of each issue raised by the Governor must begin with the general rule that legislative enactments are presumed to be constitutional.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Bd. of Regents of Higher Educ. v. Judge}{\insrsid15346591\charrsid12065940 , 543 P.2d 1323, 1330 (Mont. 1975); }{\i\insrsid15346591\charrsid12065940 Communications Workers}{\insrsid15346591\charrsid12065940 
, 617 A.2d at 232; }{\i\insrsid15346591\charrsid12065940 Mo. Coalition}{\insrsid15346591\charrsid12065940 , 948 S.W.2d at 132; }{\i\insrsid15346591\charrsid12065940 State ex rel. Shepherd v. Neb. Equal Opp. Comm}{\i\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 n}{\insrsid15346591\charrsid12065940 , 557 N.W.2d 684, 688 (Neb. 1997).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Courts should try to harmonize the legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s powers with the powers given to the executive.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Bd. of Regents}{\insrsid15346591\charrsid12065940 , 543 P.2d at 1330.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Moreover, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
he who alleges the unconstitutionality of an act bears the burden of proof. . . . [and] the validity of acts is to be upheld if at all possible with all doubt resolved 
in favor of legality and unconstitutionality will be decreed only when no other reasonable alternative presents itself . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 State ex rel. Assistant Dist. Attorneys Assoc. v. Theriot}{\insrsid15346591\charrsid12065940 , 242 So. 2d 49, 51 (La. App. 1971) (citations omitted); }{\i\insrsid15346591\charrsid12065940 
see also Shepherd}{\insrsid15346591\charrsid12065940 , 557 N.W.2d at 688.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 However, it is the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s duty to interpret the laws.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, the court must declare a legislative enactment unconstitutional if an anal
ysis of the constitutional claim compels such a result.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Mo. Coalition}{\insrsid15346591\charrsid12065940 , 948 S.W.2d at 132; }{\i\insrsid15346591\charrsid12065940 
Common Cause of Penn. v. Commonwealth}{\insrsid15346591\charrsid12065940 , 668 A.2d 190, 202-03 (Pa. 1995)}{\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid15346591 6}{\insrsid15346591  }{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591 
[C]ourts [a]re always loathe to put a construction on legislation which shows it to be invalid . . . but, if constitutions are to command general respect and obedience, the people must know that their courts will constantly endeavor to interpret them acco
rding to the commonly accepted understanding of the words used therein . . . .}{\fs20\insrsid15346591 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid15346591  
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\i\fs20\insrsid15346591 Common Cause}{\fs20\insrsid15346591 , 668 A.2d at 202 (citation omitted).}{\insrsid15346591 
\par }}}{\insrsid15346591\charrsid12065940 ; }{\i\insrsid15346591\charrsid12065940 Alexander v. State}{\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 ex rel. Allain}{\insrsid15346591\charrsid12065940 
, 441 So. 2d 1329, 1333 (Miss. 1983), }{\i\insrsid15346591\charrsid12065940 declined to be followed on other grounds by Dye v. State ex rel. Hale}{\insrsid15346591\charrsid12065940 , 507 So. 2d 332 (Miss. 1987).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
[T]he fact that a given law or procedure is efficient, convenient, and useful in facilitating functions of government, standing alone, will not save it if it is contrary to the Constitution.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 I.N.S. v. Chadha}{\insrsid15346591\charrsid12065940 , 462 U.S. 919, 944, 103 S. Ct. 2764, 2781 (1983). }{
\b\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri720\nowidctlpar\tx-1440\faauto\rin720\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }\pard \qj \fi-720\li2160\ri720\nowidctlpar\tx-1440\faauto\rin720\lin2160\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 a.\tab Whether Appendix }{\b\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\b\insrsid15346591\charrsid12065940 C}{\b\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\b\insrsid15346591\charrsid12065940 
 of P.L. 26-35 and amendments thereto violate the doctrine of separation of powers in that the legislature has attempted to set the staffing pattern of the executive branch.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [42]}{\insrsid15346591\charrsid12065940 \tab Chapter V, section 1(a) of P.L. 26-35 (original law) and Bill 405 provides: }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Personnel Services (Regular Salaries/Other Pay and Benefits) appropriations shall be expended }{\i\insrsid15346591\charrsid12065940 only}{\insrsid15346591\charrsid12065940 
 for positions contained in }{\b\insrsid15346591\charrsid12065940 APPENDIX C}{\insrsid15346591\charrsid12065940 , corresponding with each Division/Section/Program breakdown contained in }{\b\insrsid15346591\charrsid12065940 APPENDIX B}{
\insrsid15346591\charrsid12065940 .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  Petitioner}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, Exhibit A, vol. 1, p. 106 (bold and italics in original).}{\b\insrsid12065940  }{\insrsid15346591\charrsid12065940 Ap
pendix C lists each government position and the corresponding salary and benefits for each position.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940 , Exhibit E, pp. 28-99.}{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [43]}{\insrsid15346591\charrsid12065940 \tab The Governor argues that Appendix C of both P.L. 26-35 (original law) and Bill 405 (fourth amendment) violate the separat
ion of powers doctrine because it infringes on the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s duties to }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 supervise the government agencies, including the responsibility to manage the manpower needs of
 the various departments.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Petitioner}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, p. 9.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor maintains that }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 staffing patterns are management tools .
 . . [and] the Legislature has attempted to manage the personnel of the Executive Branch by enacting the staffing patterns into law . . . [thereby] . . . unduly disrupt[ing] and interfer[ing] with the Governor}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s duty to supervise and control the operation of the Executive Branch.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940  at 10.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Through Appendix C, the Legislature has exceeded its Organic Act authority and usurped the authority of the Governor.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 The problem with Appendix C is the separate listing and funding of each individual position in every agency}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 
The position listings in Appendix C and the specific appropriations for each position}{\insrsid15346591\charrsid12065940  violate the doctrine of separation of powers.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940  at 16 (emphasis added).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
We treat this argument as the gist of the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s first challenge to the Budget Bill, and therefore analyze whether the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 position listings}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  and }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 specific appropriations}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 have the effect of usurping the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s powers derived from the Organic Act.}{\insrsid15346591 

\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [44]}{\insrsid15346591\charrsid12065940 \tab The Legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s plenary power of appropriation includes the power to impose }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
conditions upon the expenditure of appropriated funds.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Santos}{
\insrsid15346591\charrsid12065940 , 1982 WL 30790, at * 3; }{\i\insrsid15346591\charrsid12065940 Schneider}{\insrsid15346591\charrsid12065940 , 547 P.2d at 799 (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 [T]he appropriation of money and the setting of limitations on expenditures by state executive agencies constitutes an exercise of legislative power.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 One such condition to an appropriation is the designation 
of positions within the government.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Communications Workers}{\insrsid15346591\charrsid12065940 , 617 A.2d at 235 (The legislature may }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 appropriate and dictate, if it desires, the services and positions designated for such appropriation.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ) (citation omitted).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The legislature may also designate salaries for various positions.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 266 A.2d at 826 (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid15346591\charrsid12065940 [I]n the absence of express legislative authority the Governor and [executive committee] . . . may not fix salaries even of personnel which the Governor is empowered to appoint.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ); }{\i\insrsid15346591\charrsid12065940 State ex rel. Meyer v. State Bd. of Equalization & Assessment}{
\insrsid15346591\charrsid12065940 , 176 N.W.2d 920, 926 (Neb. 1970) (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
It is within the power of the Legislature to fix the amount it will appropriate for personal services in any state department or agency.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 ). 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [45]}{\insrsid15346591\charrsid12065940 \tab However, the Legislature may not set limitations or conditions which }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 purport to reserve to the legislature powers of close supervision that are essentially executive in character.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Anderson}{\insrsid15346591\charrsid12065940 , 579 P.2d at 624 (Colo. 1978).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Staffing decision are at the core of the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s day-to-day administration of government.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Communications Workers}{\insrsid15346591\charrsid12065940 , 617 A.2d at 234.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Accordingly, the legislature may not set conditions to an appropriation which}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 impinge on the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s power to }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
allocate staff and resources}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  for the proper fulfilment of its duty to execute the laws.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Anderson}{\insrsid15346591\charrsid12065940 , 579 P.2d at 623-24.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [46]}{\insrsid15346591\charrsid12065940 \tab 
Appendix C of the Budget Bill has two components: first, it lists all positions in the executive branch, and second, it sets the salaries for each respective position. While the Legislature may set salaries and positions to a certain extent, the manner in
 which it has done so in Appendix C can only be viewed as an impermissible interference with}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s ultimate authority to }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
make[ ] staffing and resource allocation decisions.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 While the Legislature may limit the amounts of the total appropriation that can be expended on salaries of a given agency, as was done in Appendix B, by dictating the staffing structure of e
ach agency as done in Appendix C, the Legislature crossed the line between attaching a proper and improper condition to a general appropriation.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Several cases support this conclusion.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [47]}{\insrsid15346591\charrsid12065940 \tab For example, in }{\i\insrsid15346591\charrsid12065940 In re Opinion of the Justices to the Governor}{\insrsid15346591\charrsid12065940 , 
341 N.E.2d 254 (Mass. 1976), the court was asked to determine whether the legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
powers to approve certain schedules and salary expenditures . . . constitute exercise of executive powers; and, if so, then is it constitutionally permissible for the . . . [legislature] to grant to . . . [itself] such executive powers.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 In re Opinion of the Justices}{\insrsid15346591\charrsid12065940 
, 341 N.E.2d at 256.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The bill at issue made advance approval by a legislative committee a condition to the availability of federal funds received by the state for }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 the payment of the salary for any position . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . at 257 n.3.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Furthermore, the bill provided that such money could not be appropriated unless they were }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
based upon a schedule of positions and salary rates approved by said committees . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The court held that the powers given the legislature in this provision of the bill was more properly characterized 
as the executive power of expenditure, and not the legislative power of appropriation.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 
. at 257 (referring to the analysis of the previously discussed issue in coming to its finding).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, the court opined that it was not constitutionally permiss
ible for the legislature to reserve this power to approve the salaries and schedules for itself.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 

\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [48]}{\insrsid15346591\charrsid12065940 \tab In }{\i\insrsid15346591\charrsid12065940 Anderson v. Lamm}{\insrsid15346591\charrsid12065940 
, 579 P.2d 620 (Colo. 1978), the court was confronted with the issue of the constitutionality of provisions of the appropriations bill which allocated }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 funds based on the number of full-time employees (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 FTEs}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ) which the legislature believed each county should have,}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  and}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 made }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 certain specifications as to the number of full-time employees that can be assigned to specific job categories.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Anderson}{\insrsid15346591\charrsid12065940 , 579 P.2d at 626.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 The }{\i\insrsid15346591\charrsid12065940 Anderson }{\insrsid15346591\charrsid12065940 court determined that the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s power to administer appropriated funds includes }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 the making of specific staffing and resource allocation decisions.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id. }{\insrsid15346591\charrsid12065940 at 623-24; }{\i\insrsid15346591\charrsid12065940 see also Communications Workers}{\insrsid15346591\charrsid12065940 , 617 A.2d at 232.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The }{\i\insrsid15346591\charrsid12065940 Anderson }{\insrsid15346591\charrsid12065940 court further ruled that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 the legislature may not attach conditions to a general appropriation bill which purport to reserve to the legislature powers of close supervision that are essentially executive in character.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Anderson}{\insrsid15346591\charrsid12065940 , 579 P.2d at 624.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Based on these principles, the court held that the conditions regarding the number of full time employees impermissibly }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 interfere with the executive authority to allocate staff and resources}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  and were therefore a violation of the separation of powers doctrine.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . at 626.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [49]}{\insrsid15346591\charrsid12065940 \tab An analogous case is }{\i\insrsid15346591\charrsid12065940 State ex rel. Schneider v. Bennet}{\insrsid15346591\charrsid12065940 , 547 P.2d 786 (Kan. 1976).}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 In }{\i\insrsid15346591\charrsid12065940 Schneider}{\insrsid15346591\charrsid12065940 
, the plaintiff challenged the constitutional validity of the law establishing the powers and duties of the state finance council (}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 SFC}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 
See Schneider}{\insrsid15346591\charrsid12065940 , 547 P.2d at 790.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The SFC was composed of the governor and eight members of the legislature.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 
Id}{\insrsid15346591\charrsid12065940 . at 794.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 In accordance with statute, the SFC had various powers, including the powers to: (1) }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 fix or approve the compensation paid to state officers and employees,}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  and (2) }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
approv[e] of assignment of positions in the civil service to classes . . .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 assignment of classes to salary ranges, appr
ov[e] of the pay plan containing a schedule of salary and wage ranges and steps, approv[e] of terms upon which state agencies may furnish housing, food service and other employee maintenance to state officers and employees in the civil service, and . . . 
determin[e] . . . the cost and value of such benefits . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{
\insrsid15346591\charrsid12065940 . at 797.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The court held that these powers were }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 essentially executive or administrative in nature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 in that they }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
concern the day-to-day operations of the department of administration and its various divisions.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Accordingly, the court invalidated the statute granting these powers to the SFC, holding:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
The vesting of such powers in the state finance council in our judgment clearly grants to a legislatively oriented body control over the operation of an executive agency and constitutes a usurpation of executive power by the legislative department.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 s holding was pronounced in light of the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s agreement that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
the appropriation of money and the setting of limitations on expenditures by state executive agencies constitutes an exercise of legislative power.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 . at 799.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [50]}{\insrsid15346591\charrsid12065940 \tab In the instant case, the Legislature's appropriations to "Division/Section/Program" according to Appendix B are not questioned.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The Legislature erred, however, when it then specified that those appropriations be expended only for positions contained in Appendix C.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
This prevented the Governor from varying his staffing pattern and therefore prevented him from accomplishing his constitutional duty to faithfully execute the laws.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Perez}{
\insrsid15346591\charrsid12065940 , 1999 Guam 2 at }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  17.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Furthermore, the Legislature has not articulated any }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
overriding constitutional need}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  to usurp the Governor}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s powers to make required resource allocations within the executive branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id
}{\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Accordingly, Appendix C of the Budget Bill violates the separation of powers doctrine and is therefore inorganic and unconstitutional.
\par }\pard \qj \li0\ri720\nowidctlpar\tx-1440\faauto\rin720\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }\pard \qj \fi-720\li2160\ri720\nowidctlpar\tx-1440\faauto\rin720\lin2160\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 b.\tab Whether section 11 of Bill 205, w
hich dictates the terms of a lease of office space for Family Division of the Department of Law, violates the separation of powers doctrine}{\insrsid15346591\charrsid12065940 .
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [51]}{\insrsid15346591\charrsid12065940 \tab Section 11(c) of Bill 205 dictates that the Attorney General (hereinafter }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 AG}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
) shall, by December 31, 2001, terminate the current lease of the office space being rented out for the Department of Law}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s Family Division.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s Brief, Exhibit E, pp. 17-18 (Oct. 24, 2001).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The section further dictates that a new lease shall be procured and sets terms of the new lease, including specifications for the leased premises (e.g., square footage).}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{
\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Finally, when deciding upon on a bid, the AG is required to request a specific appropriation to fund the new lease for the remainder of the fiscal year 2002.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor argues that section 11(c) of the Budget Bill encroaches on the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s authority in that it improperly gives the Legislature the authority to manage the details of and approve the lease entered into by the AG for the Child Support Division. }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940 
, pp. 17-18.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We agree.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [52]}{\insrsid15346591\charrsid12065940 \tab The Governor relies on cases which hold that the legislature may not constitutionally require prior approval of a lease once an appropriation is made.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 Alexander}{\insrsid15346591\charrsid12065940 , 441 So. 2d at 1342; }{\i\insrsid15346591\charrsid12065940 
see also In re Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 532 A.2d at 197.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
However, in the instant case, the Legislature did not make an appropriation of the funds for the lease of office space.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Section 11(c) of the Budget Bill merely requires that the AG request funds once the lease is procured.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Legislature may request in
formation from the executive branch for the purpose of facilitating how much money should be appropriated in the future.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Mo. Coalition}{\insrsid15346591\charrsid12065940 , 948 S.W.2d at 134.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, requiring that the AG request funds after the lease is procured is not, as the Governor suggests, tantamount to an attempt to require prior legislative approval of the lease.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Rather, it is more properly viewed as an attempt by the Legislature to acquire information for the purpose of enabling the Legislature to make an appropriation adequate to meet the AG}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s needs.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [53]}{\insrsid15346591\charrsid12065940 \tab The provisions of Budget Bill that dictate terms of the lease are more problematic.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 In }{
\i\insrsid15346591\charrsid12065940 Chaffin v. Ark. Game & Fish Comm}{\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 n}{
\insrsid15346591\charrsid12065940 , 757 S.W.2d 950 (Ark. 1988), the court was presented with a constitutional challenge to an appropriations bill.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Specifically, the challenged legislation prohibited the Fish and Game Commission from entering into contracts for professional and consulta
nt services which either extend more than 20 working days, or exceed $5,000.00, without first seeking the advice of the legislature.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Chaffin}{\insrsid15346591\charrsid12065940 , 757 S.W.2d at 956.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 After receiving a contract, a committee of the Legislative Council reviews the contract and stamps it favorable or unfavorable.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{
\insrsid15346591\charrsid12065940 .}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Although the stamp of approval or disapproval was not binding on the agency, the court found that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
advice}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 offered by the [legislative] committee to an agency is tantamount to a legislative order on how to execute a contract.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The court held the requirement that the agency submit its
 contracts for legislative advice to be in violation of the separation of powers doctrine, and therefore unconstitutional.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id}{\insrsid15346591\charrsid12065940 .
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [54]}{\insrsid15346591\charrsid12065940 \tab The instant case is analogous to }{\i\insrsid15346591\charrsid12065940 Chaffin}{\insrsid15346591\charrsid12065940 , and supports a finding of a more egregious violation
 of the separation of powers doctrine.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 In the instant case, the Legislature has not merely reserved for itself the power to give }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 advice}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 on the specifics of the contract; rather, the Legislature has dictated the exact terms of the contract.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 As }{\i\insrsid15346591\charrsid12065940 Chaffin }{\insrsid15346591\charrsid12065940 
instructs, it is the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s function to determine how to execute a contract.}{\insrsid12065940 
 }{\i\insrsid15346591\charrsid12065940 See id}{\insrsid15346591\charrsid12065940 . at 956-57.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The execution of a contract necessarily includes determining the terms of the contract.}{\insrsid12065940 
 }{\insrsid15346591\charrsid12065940 By determining the terms of the lease, the Legislature has engaged in a clear executive function. 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [55]}{\insrsid15346591\charrsid12065940 \tab Section 11 (c) of Bill 405 would be constitutionally proper if the }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
legislative action . . . [was] necessary to further a statutory scheme requiring cooperation between the two branches, and such action offers no substantial potential to interfere with exclusive executive functions or alter the statute}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s purposes . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 Communications Workers}{\insrsid15346591\charrsid12065940 , 617 A.2d at}{\i\insrsid15346591\charrsid12065940  }{
\insrsid15346591\charrsid12065940 232-33.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 In the instant case, section 11(c) provides that the current lease shall terminate for }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 lack of funds.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940 , Exhibit E, p. 17.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The section further provides the maximum amount that can be charged per square foot leased and the maximum amount of square footage that may be leased.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940 
, Exhibit E, p. 18.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The section clearly attempts to place a cap on the total amount of money that can be spent by the AG in leasing office space.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Thus, the purpose of section 11(c) is to further fiscal policy.}{\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs20\super\insrsid15346591 \chftn }{\fs20\insrsid15346591  The Legislature averred this point during oral argument in this case.}{\insrsid15346591   }}}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 This purpose can be achieved by a direct appropriation; therefore there is no need, in an effort to effectuate the purpose of the statute, for the Legislature to dictate specifications for the rental space.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Even assuming that the lease specifications were included in the legislation to serve some non-fiscal purpose that necessitated cooperation with the executive branch, the Legislature}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s attempt to specify the terms of the lease substantially encroaches on the executive}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s power to determine the terms of its contracts.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Accordingly, we hold that Section 11(c) violates the separation of powers doctrine, and is thus inorganic and unconstitutional.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{
\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 Communications Workers}{\insrsid15346591\charrsid12065940 , 617 A.2d at 232-33; }{\i\insrsid15346591\charrsid12065940 see also Chaffin}{\insrsid15346591\charrsid12065940 ,}{
\i\insrsid15346591\charrsid12065940  }{\insrsid12065940 757 S.W.2d at 956-97.}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri720\nowidctlpar\tx-1440\faauto\rin720\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }\pard \qj \fi-720\li2160\ri720\nowidctlpar\tx-1440\faauto\rin720\lin2160\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 c.\tab 
Whether the staffing pattern reporting requirements of P.L. 26-35, chapter IV, section 3(a), and holiday pay reporting requirements of P.L. 26-47, section 2(d), violate the separation of powers doctrine}{\insrsid15346591\charrsid12065940 .
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [56]}{\insrsid15346591\charrsid12065940 \tab Chapter IV, section 3(a) of P.L. 26-35 requires the Governor to submit to the Legislature a monthly report stating the }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 current staffing pattern . . . including the name, position, salary and benefits of each employee.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, Exhibit A, vol. 1, pp. 37-38 (Oct. 24, 2001).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Section 2(d) of P.L. 26-47 requires that certain departments of the executive branch submit a }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
labor cost distribution report . . . within five (5) days of each disbursement detailing the payment of }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\i\insrsid15346591\charrsid12065940 Holiday Pay}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  for each person receiving additional compensation.}
{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940 , Exhibit C, p. 3.}{\insrsid15346591 

\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [57]}{\insrsid15346591\charrsid12065940 \tab The Governor argues that the requested reports }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 relate to supervision and management of the agencies . . . [and do not] serve a legislative function.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, p.}{
\i\insrsid15346591\charrsid12065940  }{\insrsid15346591\charrsid12065940 22.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We disagree.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Compiling reports on the salaries and compensation of employees is not solely within the executive powers as set forth in the Organic Act.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The legislature may reques
t information which clearly aids in the formulation of legislation.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 102 N.E.2d 79, 85 (Mass. 1951) (}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 If the legislative department were to be shut off in the manner proposed from acc
ess to the papers and records of executive and administrative departments, boards, and commissions, it could not properly perform its legislative functions.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 ).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The information requested in the instant case, alth
ough relating to the expenditure of funds, is of a type that could aid in the formulation of future appropriations legislation and therefore can be seen as related to a legitimate legislative function.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [58]}{\insrsid15346591\charrsid12065940 \tab Moreover, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
[t]he Legislature, in the exercise of its functions, may pass laws calling for action by the executive department . . . .}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Opinion of the Justices}{\insrsid15346591\charrsid12065940 , 376 N.E.2d 1217, 1225 (Mass. 1978) (opining that the statute}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s requirement that the Governor submit to the Legislature revenue raising proposals when a deficiency occurs was appropriate legislative action and consistent with the overall constitutional scheme for a balanced budget).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The reporting requirements at issue are only invalid under the separation of powers doctrine if they prevent the Governor from accomplishing his constitutional functions.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Perez}{\insrsid15346591\charrsid12065940 , 1999 Guam 2, }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  17.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Here, while it may be true, as alleged by the Governor, that the requested information relates to the supervision and management of executive agencies, the Governor simply does not demonstrate that the reporting requirements prevent him 
from fulfilling his constitutional duties in operating the executive branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Legislative Research Comm}{\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 n ex rel. Prather v. Brown}{\insrsid15346591\charrsid12065940 , 664 S.W.2d 907, 926 (Ky. 1984).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The agencies are only required to report the salary and benefits information once a month and the holiday pay disbursements after each disbursement, which logically only follows each holiday.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Moreover, the information requested is undoubtedly in the possession of the agencies.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor fails to show how reporting that information at the prescribed times imposes a }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 a substantial interference or undue burden on department operations.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 In re interest of J.A.}{\insrsid15346591\charrsid12065940 
, 406 N.W.2d 372, 376 (Wis. 1987).}{\cs15\super\insrsid15346591\charrsid12065940 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\cs15\fs20\super\insrsid15346591 \chftn }{\fs20\insrsid15346591 
 We emphasize that had the Legislature required that the departments and agencies submit reports on a more frequent basis, we may not be similarly inclined to uphold the statutes.  However, separation of powers challenge
s must be analyzed on a case by case basis, and the facts of this case support our holding that the requirement of monthly reports and reports which will only be required after each holiday do not impose enough of a burden on the departments so as to prev
ent the departments from properly functioning.  }}}{\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [59]}{\insrsid15346591\charrsid12065940 \tab Legislative enactments are presumed to be constitutional.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Bd. of Regents}{\insrsid15346591\charrsid12065940 , 543 P.2d at 1330.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Absent a clear showing of unconstitutionality, i.e., a showing that the statute prevents the exercise of the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s constitutional functions, we are bound to uphold the challenged provision.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
We find that the Governor has failed to meet his burden, and therefore hold that the provisions of the Budget Bill which establish reporting requirements do not violate the separation of powers doctrine.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }\pard \qj \fi-720\li2160\ri720\nowidctlpar\tx-1440\faauto\rin720\lin2160\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 d.\tab 
Whether P.L. 26-47, section 7(b), which sets a specific date for filling the positions of Chief Procurement Officer and Controller, violates the separation of powers doctrine.}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [60]}{\insrsid15346591\charrsid12065940 \tab Section 7(b) of P.L. 26-47 provides that if the positions of Chief Procurement Officer and Department of Administration (}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 DOA}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 ) Controller are not filled by January 1, 2002, the money appropriated for these positions reverts to the General Fund.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See }{\insrsid15346591\charrsid12065940 
Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, Exhibit C, p. 9 (Oct. 24, 2001).}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The Governor argues that section 7(b) violates the separation of powers doctrine because it is an attempt by the Legislature to manage the hiring of employees.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [61]}{\insrsid15346591\charrsid12065940 \tab We first point out that the Governor does not challenge the Legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s appropriation for 
the two positions under Section 7(a); he only challenges the lapse provision contained in Section 7(b) on the ground that it, in effect, imposes a deadline to fill the positions.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
We disagree with the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s 
contention that through the lapsing provision, the Legislature has supervised and controlled the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s hiring decisions.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 To wit}{\insrsid15346591\charrsid12065940 ,}{\i\insrsid15346591\charrsid12065940  }{\insrsid15346591\charrsid12065940 
the condition does not hamper the decisions which are reserved exclusively and specifically for the Governor, such as which individuals should be hired to fill the particular positions; but rather, sets a time limit on the availability of funds.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 We do agree, though, that the lapsing provision does, to some degree, }{\i\insrsid15346591\charrsid12065940 affect}{\insrsid15346591\charrsid12065940  the Governor}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s hiring decisions in that the Legislature is limiting the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s ability to fill positions }{\i\insrsid15346591\charrsid12065940 when}{\insrsid15346591\charrsid12065940  he deems appropriate.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [62]}{\insrsid15346591\charrsid12065940 \tab However, the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s power to hire is inextricably tied to the legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s power to appropriate because the executive}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s ability to hire is dependent upon whether the legislature appropriates the funds.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Flynn v. Dep}{\i\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid15346591\charrsid12065940 t of Admin.}{\insrsid15346591\charrsid12065940 , 576 N.W.2d 245, 257 (Wis. 1998).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The legislature}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s power of appropriation includes the power to impose a condition that funds lapse if not used.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 See Meyer}{\insrsid15346591\charrsid12065940 , 176 N.W.2d at 926-27.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The limitation to this power is that the condition imposed must not create such an interference with another branch}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s functions so as to prevent that other branch from fulfilling its constitutionally prescribed duties.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Flynn}{\insrsid15346591\charrsid12065940 , 576 N.W.2d at 257-58; }{\i\insrsid15346591\charrsid12065940 see also Perez}{\insrsid15346591\charrsid12065940 , 1999 Guam 2 at }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  17 (requ
iring a showing that a statute prevents the accomplishment of a constitutional function in order for there to be a separation of powers violation).
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [63]}{\insrsid15346591\charrsid12065940 \tab In }{\i\insrsid15346591\charrsid12065940 Flynn}{\insrsid15346591\charrsid12065940 , a continuing appropriation was made by the legislature to the judiciary to fun
d a program that involved the automation of court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s information system.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id. }{\insrsid15346591\charrsid12065940 at 248.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Any unused funds were carried over into the following year and combined with any additional appropriation.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940  at 249.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The legislature subsequently passed a statute that lapsed a portion of the judiciary}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s excess appropriation back into the general fund.}{\insrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The court upheld the statute, finding that }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 the legislature may lapse . . . funds to the general purpose revenue fund only if such lapse does not unduly burden or substantially interfere with the judiciary.}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940  at 257.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The burden rests with the challenger to prove that the lapsing creates an undue burden or substantial interference in the functioning of another branch.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid15346591\charrsid12065940 
 at 257-58.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [64]}{\insrsid15346591\charrsid12065940 \tab Thus, the issue here is whether the lapsing of funds for the two positions unduly burdens or substantially interferes with the operation of the executive branch.}{
\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  }{\i\insrsid15346591\charrsid12065940 Id.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
In the instant case, section 7(b) went into effect in October 2001 and required the positions to be filled by January 2002.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 We agree with the Governor}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s assertion that special expertise is necessary for these positions.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The Chief Procurement Officer }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
must have the qualifications in the specialized area of public procurement.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Title 5 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  5111 cmt. (1996); }{\i\insrsid15346591\charrsid12065940 see }{
\insrsid15346591\charrsid12065940 Title 5 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
 5110 (1996) (creating the position of Chief Procurement Officer).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Similarly, the position of controller within a government agency requires special expertise in the area of finance and accounting.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, we agree that three months is an insufficient time period within which to fill positions which require such highly specialized knowledge.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Moreover, the positions at issue are vested with significant responsibilities in key areas of executive operations.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
For example, the Chief Procurement Officer is statutorily charged with the duties to:}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 (i) procure or supervise the procurement of all supplies and services needed by the Territory;
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 (ii) exercise general supervision and control over all inventories of supplies belonging to the Territory; and
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 (iii) establish and maintain programs for the inspection, testing and acceptance of supplies and services.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par Title 5 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  5113 (c)(1) (1996).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
The Chief Procurement Officer plays a central role with regard to government procurement.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See}{\insrsid15346591\charrsid12065940  Title 5 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  5001-5710 (1996) (delineating the Chief Procurement Officer}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s specific duties).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Similarly, the Controller occupies a top financial position within the Department of Administration, an agency vested with wide-ranging duties in the executive branch, including employee relations, }{\i\insrsid15346591\charrsid12065940 see}{
\insrsid15346591\charrsid12065940  Title 4 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  10115 (1993), government procurement, }{
\i\insrsid15346591\charrsid12065940 see }{\insrsid15346591\charrsid12065940 Title 5 GCA }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  5001, 5110, 5113 (1996), records management, and data processing, }{\i\insrsid15346591\charrsid12065940 see }{\insrsid15346591\charrsid12065940 5 GCA }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  20103 (1996).}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, both the C
hief Procurement Officer and the DOA Controller are essential positions in the overall functioning of the executive branch.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [65]}{\insrsid15346591\charrsid12065940 \tab }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
[T]he legislature . . . has clear constitutional authority to appropriate scarce resources.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  }{
\i\insrsid15346591\charrsid12065940 Flynn}{\insrsid15346591\charrsid12065940 , 576 N.W.2d at 257.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
However, because section 7(b) imposes an unreasonable time restriction in hiring individuals to fill specialized positions integral to the executive department}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s functions,}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 the condition placed an undue burden and created a substantial interference in the operation of the executive branch.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Accordingly, the section violates the separation of powers doctrine and is therefore inorganic and unconstitutional.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid15346591\charrsid12065940 VI.}{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }{\insrsid15346591\charrsid12065940 [66]\tab In accordance with the foregoing discussion, we decline to address the merits of the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15346591\charrsid12065940 s challenge to the constitutionality of chapter IV, section 7 of Public Law 26-35 on the ground that it does not fall within our grant of jurisdiction under section 4104.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Further, we find that the reporting requirements set forth in chapter IV, section 3(a) of P.L. 26-35 and in section 2(d) of P.L. 26-47, do not violate the separation of powers doctrine and are therefore constitutional.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 However, we find that the staffing pattern set forth in Appendix C of the Budget Bill and the lease terms set forth in section 11 of Bill 205 amount to an improper usurpation by the Legi
slature of the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Organic Act powers, thereby violating the separation of powers doctrine.}{
\insrsid12065940  }{\insrsid15346591\charrsid12065940 Furthermore, we find that section 7(b) of P.L. 26-47, which sets a specific date for filling the positions of Ch
ief Procurement Officer and Controller, amounts to an improper legislative interference with executive functions.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Therefore, these provisions of the Budget Bill are }{\insrsid12065940 
inorganic and unconstitutional.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [67]}{\insrsid15346591\charrsid12065940 \tab In accordance with the severability clauses containe
d in chapter V, section 24, of P.L. 26-35; section 18 of Bill 205; and section 10 of P.L. 26-47, the invalid provisions of the Budget Bill are hereby severed and the remaining provisions continue to remain in effect.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Turning specifically to severance of Appendix C, we note that Legislature is still bound to make the appropriations as provided for in Appendix B, which is valid and remains in effect. }{\insrsid12065940 
\par 
\par }\pard \ql \fi-5040\li5760\ri0\nowidctlpar\tx-1440\faauto\rin0\lin5760\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 JOHN A. MANGLONA\tab \tab \tab \tab }{\insrsid12065940  }{\insrsid15346591\charrsid12065940 PETER C. SIGUENZA, JR.
\par Designated Justice\tab }{\insrsid12065940  }{\insrsid15346591\charrsid12065940 \tab \tab \tab \tab }{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Chief Justice}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 RICHARD H. BENSON, CONCURRING AND DISSENTING}{\insrsid15346591\charrsid12065940 :
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [68]}{\insrsid15346591\charrsid12065940 \tab I concur and join in the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s disposition of the Legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s Motion to Dismiss, and all issues presented by the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s request for declaratory judgment except one.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [69]}{\insrsid15346591\charrsid12065940 \tab I respectfully dissent from the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 s conclusion that the provision is inorganic which sets a date by which funds appropriated for the Chief Procurement Officer and the Controller will lapse if the positions are not filled.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [70]}{\insrsid15346591\charrsid12065940 \tab As the court correctly notes, the Governor had the burden of proof in his allegation that the provision was inorganic and unconstitutional. The burden is a heavy one since 
}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
the validity of acts is to be upheld if at all possible with all doubt resolved in favor of legality and unconstitutionality will be decreed only when no other reasonable alternative presents itself. . . .}{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 Theriot}{\insrsid15346591\charrsid12065940 , 242 So. 2d at 51.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The Governor seeks to meet that burden in less than one page of his Opening Brief.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Without repeating his summary of the lapse provision or his legal objection to it, he states, 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12065940 {\insrsid12065940 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 Technical expertise is required for the positions of Chief Procurement Officer and Controller.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 It is unknown how long it might take to recruit and hire a Chief Procurement Officer and a Controller.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Regardless of how long it might take to fill these positions, it is not a legislative function to dictate a deadline for hiring Executive Branch employees.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 
\par Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, p. 22.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
On its face, it is clear that the Governor has not carried his burden of demonstrating the unconstitutionality of a provision that provides that the salary appropriation lapses if the positions are not filled within three months of the Bud
get Bill becoming law.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Governor acknowledges that no one knows how long it will take to fill the positions.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [71]}{\insrsid15346591\charrsid12065940 \tab The Legislature did not address this issue at all in its brief, so only the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s words are before us.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [72]}{\insrsid15346591\charrsid12065940 \tab The court however finds that three months is an }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid15346591\charrsid12065940 unreasonable time restriction}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  that}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 plac
ed an undue burden and created a substantial interference in the operation of the executive branch.}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Majority Opinion }{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  65.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Since it is not the court}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s place to make findings of fact, the court must be saying that as a matter of law three months is }{\ul\insrsid15346591\charrsid12065940 per}{\insrsid15346591\charrsid12065940  }{\ul\insrsid15346591\charrsid12065940 se}{\insrsid15346591\charrsid12065940 
 unreasonable.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 This is surprising considering the only reference we have to the matter by either party is the Governor}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s statement that the time required is unknown.
\par }{\b\insrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [73]}{\insrsid15346591\charrsid12065940 \tab All doubt should be resolved in favor of legality.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 The Chief Procurement Officer position has been in Guam}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s statutes since 1982. Public Law 16-124 added Government Code }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940  6954 which created the General Services Agency headed by the Chief Procurement Officer.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 Public Law 25-164, the Budget Bill for Fiscal Year 2001, included
 a lump sum appropriation for personnel services for the Department of Administration in which the positions of Chief Procurement Officer and Controller belong.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 
Perhaps they were not filled during that year and the Legislature desired to have an end to carrying unfilled positions, even though the Chief Procurement Officer is an element in the legislative scheme it enacted.}{\insrsid15346591 
\par }{\insrsid12065940\charrsid12065940 
\par }{\b\insrsid15346591\charrsid12065940 [74]}{\insrsid15346591\charrsid12065940 \tab The legislature}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 
s power of appropriation includes the power to impose a condition that funds lapse if not used.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Meyer}{\insrsid15346591\charrsid12065940 , 176 N.W.2d at 926-27.}{\insrsid12065940  }{
\insrsid15346591\charrsid12065940 The limitation to this power is that the condition imposed must not create such an interference with another branch}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s functions so as to prevent that other branch from fulfilling its constitutionally prescribed duties.}{\insrsid12065940  }{\i\insrsid15346591\charrsid12065940 See Flynn}{
\insrsid15346591\charrsid12065940 , 576 N.W.2d at 257-58.
\par 
\par }{\b\insrsid15346591\charrsid12065940 [75]}{\insrsid15346591\charrsid12065940 \tab The Governor fails to demonstrate such interference.}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 He only says, }{\insrsid15346591\charrsid12065940 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 Thus, the Legislature is attempting to manage the hiring of employees by giving a deadline to fill specific positions.}{
\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12065940  }{\insrsid15346591\charrsid12065940 Petitioner}{\insrsid15346591\charrsid12065940 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15346591\charrsid12065940 s Brief, p. 22.}{\insrsid12065940 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12065940 {\insrsid15346591\charrsid12065940 RICHARD H. BENSON
\par Justice }{\i\insrsid15346591\charrsid12065940 Pro Tempore}{\insrsid15346591\charrsid12065940 
\par }}