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Taitano}{ \fs20\insrsid10768034 , Opinion\tab Page }{\field{\*\fldinst {\fs20\insrsid10768034 PAGE }}{\fldrslt {\fs20\lang1024\langfe1024\noproof\insrsid16285163 1}}}{\fs20\insrsid10768034 of 12 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par }\pard \qj \li0\ri0\sl-9\slmult0\nowidctlpar\faauto\rin0\lin0\itap0 {\lang1024\langfe1024\noproof\insrsid16285163 {\shp{\*\shpinst\shpleft1440\shptop0\shpright10800\shpbottom9\shpfhdr1\shpbxpage\shpbxignore\shpbypara\shpbyignore\shpwr3\shpwrk0\shpfblwtxt1\shpz0\shplockanchor\shplid2049{\sp{\sn shapeType}{\sv 1}}{\sp{\sn fFlipH}{\sv 0}}{\sp{\sn fFlipV}{\sv 0}} {\sp{\sn fillColor}{\sv 0}}{\sp{\sn fillBackColor}{\sv 0}}{\sp{\sn fFilled}{\sv 1}}{\sp{\sn lineWidth}{\sv 0}}{\sp{\sn fLine}{\sv 0}}{\sp{\sn fShadow}{\sv 0}}{\sp{\sn posrelh}{\sv 1}}{\sp{\sn fLayoutInCell}{\sv 0}}{\sp{\sn fBehindDocument}{\sv 1}} {\sp{\sn fLayoutInCell}{\sv 0}}}{\shprslt{\*\do\dobxpage\dobypara\dodhgt0\dprect\dpx1440\dpy0\dpxsize9360\dpysize9\dpfillfgcr0\dpfillfgcg0\dpfillfgcb0\dpfillbgcr0\dpfillbgcg0\dpfillbgcb0\dpfillpat1\dplinehollow}}}}{\fs20\insrsid10768034 \par }\pard \ql \li0\ri0\sl-240\slmult0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par }}{\*\pnseclvl1\pnucrm\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl2\pnucltr\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl3\pndec\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl4\pnlcltr\pnstart1\pnindent720\pnhang {\pntxta )}} {\*\pnseclvl5\pndec\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl6\pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl7\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl8 \pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl9\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}\pard\plain \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid10768034\charrsid5404392 IN THE SUPREME COURT OF GUAM}{\b\insrsid5404392 \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid5404392 \par }\pard \qc \li0\ri0\keep\keepn\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 SEAN WADE,}{\b\insrsid5252764\charrsid5404392 \par }{\v\insrsid10768034\charrsid5404392 GUAM BAR ETHICS COMMITTEE}{\insrsid10768034\charrsid5404392 \par }\pard\plain \s1\qc \li0\ri0\keep\keepn\nowidctlpar\faauto\outlinelevel0\rin0\lin0\itap0\pararsid5404392 \b\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b0\insrsid10768034\charrsid5404392 Petitioner-Appellant,}{ \insrsid10768034\charrsid5404392 \par }\pard\plain \ql \li0\ri0\keep\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid10768034\charrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 vs}{\b\insrsid10768034\charrsid5404392 .}{\insrsid10768034\charrsid5404392 \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par }\pard \qc \li0\ri0\keep\keepn\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid16285163 GERALD A. TAITANO,}{\b\insrsid10768034\charrsid5404392 \par }{\insrsid10768034\charrsid5404392 in his cap}{\insrsid16285163 acity as the Executive Director}{\insrsid10768034\charrsid5404392 \par of the Guam Election Commission,}{\insrsid10768034\charrsid5404392 \par Respondent-Appellee.}{\insrsid5404392 \par }\pard \ql \li0\ri0\keep\keepn\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid5404392 \par }\pard \qc \li0\ri0\keep\keepn\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 OPINION}{\insrsid10768034\charrsid5404392 \par }\pard \ql \li0\ri0\keep\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 Supreme Court Case No.: CVA02-016}{\b\insrsid10768034\charrsid5404392 }{\v\insrsid10768034\charrsid5404392 Supreme Court Case No.:CVA00\_011}{ \insrsid10768034\charrsid5404392 \par Superior Court Case No.: SP0079-02}{\insrsid5404392 \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 Filed:}{\b\insrsid5404392 }{\b\insrsid10768034\charrsid5404392 September 9, 2002}{\insrsid5404392 \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 Cite as:}{\b\insrsid5404392 }{\b\insrsid10768034\charrsid5404392 2002 Guam 16}{\insrsid5404392 \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 Appeal from the Superior Court of Guam \par Argued and submitted on August 26, 2002 \par Hag\'e5t\'f1a, Guam}{\insrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par }\trowd \irow0\irowband0\lastrow \ts11\trqc\trgaph120\trleft-120\trftsWidth1\trpaddl120\trpaddr120\trpaddfl3\trpaddfr3 \clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clshdrawnil \cellx4560\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clshdrawnil \cellx9240\pard \ql \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid5404392 {\ul\insrsid10768034\charrsid5404392 Appearing for Petitioner-Appellant}{\insrsid10768034\charrsid5404392 : \par Ron Moroni, Esq. \par Thomas M. Tarpley, Jr. P.C. \par American Life Bldg. \par 137 Murray Blvd., Ste. 201 \par Hag\'e5t\'f1a, Guam 96910-5104\cell }\pard \ql \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid5404392 {\ul\insrsid10768034\charrsid5404392 Appearing for Respondent-Appellee}{\insrsid10768034\charrsid5404392 : \par }{\insrsid5404392 Cesar C. Cabot, Esq.}{\insrsid10768034\charrsid5404392 \par Law Offices of Cesar C. Cabot, P.C. \par }{\insrsid5404392 825 S. Marine Dr.}{\insrsid10768034\charrsid5404392 \par Tamuning, Guam 96913\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid10768034\charrsid5404392 \trowd \irow0\irowband0\lastrow \ts11\trqc\trgaph120\trleft-120\trftsWidth1\trpaddl120\trpaddr120\trpaddfl3\trpaddfr3 \clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clshdrawnil \cellx4560\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clshdrawnil \cellx9240\row }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid5404392 \par }{\insrsid10768034\charrsid5404392 BEFORE: PETER C. SIGUENZA, JR., Chief Justice; F. PHILIP CARBULLIDO, Associate Justice; FRANCES M. TYDINGCO-GATEWOOD, Associate Justice.}{\insrsid5404392 \par \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 CARBULLIDO, J.:}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par }{\b\insrsid10768034\charrsid5404392 [1]}{\insrsid10768034\charrsid5404392 \tab Petitioner-Appellant Sean Wade (hereinafter }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 Wade}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ) appeals from the trial court}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s invalidation of Title 6 Guam Administrative Rules and Regulations (GAR) }{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 2108(c) (1997) (hereinafter }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 regulation 2108(c)}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 ).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The trial court invalidated regulation 2108(c) on the ground that the regulation is inconsistent with the Guam Election Code}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s verification requirement.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Although we find regulation 2108(c) to be inconsistent with the Election Code on a separate ground, we affirm the trial court}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 s ultimate }{\insrsid5404392 invalidation of the regulation.}{\insrsid10768034 \par }{\insrsid5404392\charrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 I. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid5404392 \par }{\b\insrsid10768034\charrsid5404392 [2]}{\insrsid10768034\charrsid5404392 \tab On August 17, 2001, Wade submitted to the Guam Election Commission (hereinafter }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ) a proposed initiative measure for the Guam Gaming Act entitled, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 Territorial Gaming Act of Guam, an Adoption of Nevada State law by and for the People of Guam,}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 (hereinafter }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 Initiative}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The GEC processed the proposed Initiative in accordance with Title 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17201, }{\i\insrsid10768034\charrsid5404392 et seq}{\insrsid10768034\charrsid5404392 (1998).}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 In a letter dated August 22, 2001, the GEC Executive Director Gerald Taitano (hereinafter }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 Taitano}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ) informed Wade that August 22, 2001 represented the }{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 OFFICIAL SUMMARY DATE}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 of the Initiative measure.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 This meant that Wade was required to present to the GEC a minimum of 5,332 valid signatures, constituting ten percent of the registered voters on island, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 no later than 120 days from the official summary date, i.e. December 19, 2001.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Record on Appeal, tab 3 (Letter dated August 22, 2001).}{\insrsid10768034 \par }{\insrsid5404392\charrsid5404392 \par }{\b\insrsid10768034\charrsid5404392 [3]}{\insrsid10768034\charrsid5404392 \tab From September 4, 2001 to December 19, 2001, Wade, on five separate occasions}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 Title 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 18101 confers upon the GEC the authority to }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{ \fs20\insrsid10768034 promulgate rules }{\i\fs20\insrsid10768034 allowing any proponent to submit petitions to the Election Commission on a staggered schedule}{\fs20\insrsid10768034 , as the signed petitions are received by the proponents, rather than waiting until all petitions have been signed.}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 Title 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 18101 (1998).}}}{\insrsid10768034\charrsid5404392 submitted to the GEC a total of 7,030 signatures he collected pursuant to Title 3 G.C.A. }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17207 (1996).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In a letter dated January 14, 2002, Taitano informed Wade that the Initiative }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 failed to qualify for ballot placement in this year}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s general election}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 because he failed to submit the minimum of 5,332 valid signatures.}{ \insrsid5404392 }{\insrsid10768034\charrsid5404392 Record on Appeal, tab 3 (Letter dated January 14, 2002).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Of the total 7,030 submitted signatures, the GEC found only 4,873 valid signatures, which in effect, meant that Wade}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Initiative petition was 459 signatures short of the requirement mandated under Title 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17201 (1998).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Record on Appeal, tab 3 (Letter dated January 14, 2002). \par }{\b\insrsid5404392 \par }{\b\insrsid10768034\charrsid5404392 [4]}{\insrsid10768034\charrsid5404392 \tab On April 9, 2002, Wade filed a Petition for Alternative and Peremptory Writs of Mandamus, requesting that the trial court direct the GEC to include the Initiative in the November ballot because Taitano failed to comply with regulation 2108(c) by not notifying him within twenty days of the petition}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s presentation that his Initiative was rejected.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Additionally, Wade challenged the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 s verification methodology and argued that the GEC had failed to count all of the valid signatures he submitted.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In response, Taitano filed an Answer on April 18, 2002 and presented a three-part argument that: 1) regulation 2108(c) was inconsistent with Title 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 18101 (1998), which requires the verification of all signatures; (2) regulation 2108(c) should be construed to give the GEC twenty working days to provide notice of the rejection; and (3) Wade had al legedly received a tabulation sheet on December 26, 2001, which constituted effective notice under regulation 2108(c).}{\insrsid10768034 \par }{\insrsid5404392\charrsid5404392 \par }{\b\insrsid10768034\charrsid5404392 [5]}{\insrsid10768034\charrsid5404392 \tab A bench trial was held on May 29-30, 2002, culminating with a June 11, 2002 Decision and Order.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The trial court too k judicial notice that January 8, 2002 represented twenty calendar days after December 19, 2001 and that January 18, 2002 represented twenty working days after December 19, 2001.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Although the trial court found that Wade satisfied the }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 statutory requirements for a writ of mandate,} {\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 the trial court denied Wade}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s petition on two grounds.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 First, the trial court invalidated regula tion 2108(c) because it found that the Executive Director of the GEC }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 does not have the authority to allow by administrative regulation the automatic acceptance of signatures on an initiative petition.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{ \fs20\insrsid10768034 With respect to the factual issue as to whether Wade had received earlier notice of the inadequacy of his petition, the trial court found in Wade}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s favor. Thus, Wade did not receive any notice that his petition failed to meet the ten percent statutory requirement until January 14, 2001. \par }}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Appellant}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Excerpts of Record, tab F, p. 7 (Decision and Order, June 11, 2002).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Second, and in the alternative, the trial court held that }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 even if the regulation was valid, the Executive Director substantially complied with the regulation by providing the required notice within 20 }{ \i\insrsid10768034\charrsid5404392 working days}{\insrsid10768034\charrsid5404392 .}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 Appellant}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Excerpts of Record, tab F, p. 8 (Decision and Order, June 11, 2002) (emphasis added).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Wade timely filed a notice of appeal on July 12 , 2002, challenging the underlying legal conclusions made by the trial court. \par \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 II.}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [6]}{\insrsid10768034\charrsid5404392 \tab We have jurisdiction over the appeal of a final judgment pursuant to Title 7 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 3108(a) (1994).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Because both parties have stipulated to the trial court}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s findings of fact,}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 Our examination, therefore, operates under the premise that Wade has not satisfied the ten percent threshold requirement.}}}{\insrsid10768034\charrsid5404392 we confine our review to the pivotal issue in this appeal of whether regulation 2108(c) is inconsistent with the provisions of the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s enabling statutes covering Initiatives, 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17201, }{\i\insrsid10768034\charrsid5404392 et seq}{ \insrsid10768034\charrsid5404392 .}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 We review questions of statutory interpretation }{\i\insrsid10768034\charrsid5404392 de novo}{\insrsid10768034\charrsid5404392 .}{\insrsid5404392 }{ \i\insrsid10768034\charrsid5404392 People v. Palomo}{\insrsid10768034\charrsid5404392 , 1998 Guam 12, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 4; }{\i\insrsid10768034\charrsid5404392 People v. Guerrero}{\insrsid10768034\charrsid5404392 , 2000 Guam 26, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 5; }{\i\insrsid10768034\charrsid5404392 Apana v. Rosario}{\insrsid10768034\charrsid5404392 , 2000 Guam 7, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 9. \par \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 III.}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [7]}{\insrsid10768034\charrsid5404392 \tab We begin our analysis by outlining two fundamental principles in statutory and regulatory constructions.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The first principle is that }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 [a]n agency does not have the authority to ignore its own rules.}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 Aetna Cas. & Sur. Co. v. Blanton}{\insrsid10768034\charrsid5404392 , 911 P.2d 363, 365 (Or. Ct. App. 1996).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Regulations have the same legal effect as statutes, }{\i\insrsid10768034\charrsid5404392 Schmidt v. State}{\insrsid10768034\charrsid5404392 , 586 N.W.2d 148, 153 (Neb. 1998), and, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 [w]hen an agency has the authority to adopt rules and does so, it must follow them.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{ \i\insrsid10768034\charrsid5404392 Aetna}{\insrsid10768034\charrsid5404392 , 911 P.2d at 365 (quotations omitted).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Therefore, an agency}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s procedural rules }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 are binding upon the agency which enacts them as well as upon the public.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{ \i\insrsid10768034\charrsid5404392 Douglas County Welfare Admin. v. Parks}{\insrsid10768034\charrsid5404392 , 284 N.W.2d 10, 10-11 (Neb. 1979); }{\i\insrsid10768034\charrsid5404392 see also Schmidt}{\insrsid10768034\charrsid5404392 , 586 N.W.2d at 154 (}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 Regulations governing procedure are just as binding upon both the agency which enacts them and the public, and the agency does not, as a general rule, have the discretion to waive, suspend, or disregard, in a particular case, a validly adopted rule so long as such rule remains in force.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ) (internal quotations and citations omitted).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The second principle is that an agency, such as the GEC, is a creature of the Legislature and can }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 act only to implement their charter as it is written and as given to them.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 Liao v. New York State Banking Dep}{\i\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid10768034\charrsid5404392 t.}{\insrsid10768034\charrsid5404392 , 548 N.E.2d 911, 913 (N.Y. 1989).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Because }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 [a]n agency cannot create rules, through its own interstitial declaration, that were not contemplated or authorized by the Legislature,}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}} {\insrsid10768034\charrsid5404392 }{\i\insrsid10768034\charrsid5404392 id.}{\insrsid10768034\charrsid5404392 , the court can only uphold rules and regulations promulgated by the agency }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 which are consistent with the legislative scheme.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}} {\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 ASARCO, Inc. v. Puget Sound Air Pollution Control Agency}{\insrsid10768034\charrsid5404392 , 771 P.2d 335, 339 (Wash. 1989).}{\insrsid10768034 \par }{\insrsid12863678\charrsid5404392 \par }{\b\insrsid10768034\charrsid5404392 [8]}{\insrsid10768034\charrsid5404392 \tab Consequently, in ascertaining whether we should order an agency to uphold its regulation, we must initially resolve whether the regulation is consistent with the agency}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s enabling statutes.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In this regard, we apply the following two-step analytical framework.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 First, we determine whether the regulation is in contravention of the }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 unambiguous[] expressed intent of [the Legislature]}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 as reflected by the }{\i\insrsid10768034\charrsid5404392 plain meaning}{\insrsid10768034\charrsid5404392 of the statute }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 as well as the language and design of the statute as a whole.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 K Mart Corp. v. Cartier, Inc.}{\insrsid10768034\charrsid5404392 , 486 U.S. 281, 291, 108 S. Ct. 1811, 1817-18 (1988).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Second, in cases where }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 the statute is silent or ambiguous with respect to the specific issue addressed by the regulation,}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 we must then decide }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 whether the agency regulation is a permissible construction of the statute.}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 Id}{\insrsid10768034\charrsid5404392 . at 291-92, 108 S.Ct. at 1818. \par }{\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [9]}{\insrsid10768034\charrsid5404392 \tab In the present appeal, Wade argues that his Initiative should be placed on the election ballot in light of regulation 2108(c), which prescribes that the GEC}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s failure to provide a proponent proper notice of the petition}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s rejection within twenty days of its presentation results in its automatic acceptance.}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 Wade asserts that the trial court erred by holding regulation 2108(c) invalid and unenforceable.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Contrarily, the GEC contends that the trial court correctly held regulation 2108(c) invalid because the regulation is in contravention with the Election Code}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Initiative provisions, which specifically require verification by the GEC of all signatures on a petition before acceptance.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 After employing the above principles and analytical framework, we hold that the trial court did not err in invalidating regulation 2108(c).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 We agree with the trial court}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s ultimate conclusion that regulation 2108(c) is inconsistent with the GEC}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s enabling statutes.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 However, as we explain below, we disagree with the trial court}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s basis in arriving at this conclusion. }{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Contrary to the trial court}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s analysis, we find that regulation 2108(c) is not invalidated by the Election}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Code}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s verification prerequisite, but, rather, by the ten percent valid signature requirement.}{ \insrsid10768034 \par }{\insrsid12863678\charrsid5404392 \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 A.\tab Verification}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [10]}{\insrsid10768034\charrsid5404392 \tab Regulation 2108 (c) provides: \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12863678 {\insrsid12863678 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 The Director }{\i\insrsid10768034\charrsid5404392 shall notify the proponent of an initiative measure}{\insrsid10768034\charrsid5404392 in writing either personally delivered or sent by registered mail of his acceptance or refusal to accept an initiative petition for filing }{\i\insrsid10768034\charrsid5404392 within twenty (20) days of the presentation of the petition to the Commission} {\insrsid10768034\charrsid5404392 .}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The date of delivery or deposit as registered mail with the U.S. Postal Service of a notice of acceptance shall be deemed the date of acceptance.}{\insrsid5404392 }{ \i\insrsid10768034\charrsid5404392 If no notice is given within twenty (20) days, it shall be treated as an acceptance of the petition for filing on the date the period expires}{\insrsid10768034\charrsid5404392 .}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 The period provided by this Paragraph may be extended no more than ten (10) days by giving not ice as above of the extension to the proponent, if in the opinion of the Director, an extension of the period is necessary to determine whether the requirements for filing are met.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 If such extension is made and no notice of acceptance or refusal is given before expiration of the extension, it shall be treated as an acceptance as of the expiration of the extension. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 \par 6 GAR }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 2108 (emphasis added).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Pursuant to regulation 2108(c), the GEC, within twenty days of the proponent}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s presentation of the petition, must provide the proponent a notice of the petition}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s acceptance, refusal, or extension of the twenty days requirement or else the petition is effectively treated as having been accepted.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The trial court invalidated regulation 2108(c) because the regulation creates an automatic acceptance scheme.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Since the trial court found }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 [n]othing in the Guam Code allow[ing] for automatic acceptance of signatures on an initiative petition,}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 it held the automatic scheme to be inconsistent with the Guam Code, which }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 clearly requires the Executive Director to verify that each signature on an initiative petition is that of a registered voter before acc epting the initiative for filing and placement on the ballot.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Appellant}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Excerpts of Record, tab F, p. 7 (Decision and Order, June 11, 2002).}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 We disagree. \par }{\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [11]}{\insrsid10768034\charrsid5404392 \tab The GEC is clearly conferred with the power to promulgate rules and regulations to effectuate its enabling statutes, including Title 3, Chapter 17, Article 2, which provides the statutory framework for the Initiative process on Guam.}{\insrsid5404392 }{ \i\insrsid10768034\charrsid5404392 See}{\insrsid10768034\charrsid5404392 Title 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 2103-2104 (1996).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Of particular import under the Initiative provisions is section 17211, titled }{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 Number of Signatures Required to Place Initiative on Ballot.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Section 17211 provides that, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 The Election Commission }{\i\insrsid10768034\charrsid5404392 shall not accept}{\insrsid10768034\charrsid5404392 any petition on a proposed initiative measure unless it has been certified as provided in }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17207 and has met the qualifications provided for by }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17201 of this Chapter.}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Title 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17211 (1996) (emphasis added).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Essentially, section 17211 mandates that an initiative placed on the ballot must meet two requirements: first, proper verification by the GEC of the signatures as mandated under sections 17207(a)-(c)}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 Title 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 17207. Initiative Petition: Forms; Certification. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid10768034 (a) Each section of the initiative petition shall have a half-inch column to the left of the place for printed names for use of the election clerks. Each signer shall sign his signature next to his printed name and in the next place, print his place of re sidence (giving the street and number if such exist, plus P.O. Box) and social security or C.I. number. \par (b) The number of signatures attached to each section of the petition shall be at the pleasure of the person soliciting signatures to the same. Any quali fied voter of the territory of Guam shall be competent to solicit said signatures. The petition shall have attached thereto the affidavit of the person soliciting signatures stating his qualifications and that all the signatures to the attached section we re made in his presence and that to the best of his knowledge and belief each signature to the section is the genuine signature of the person whose name it purports to be, and no other affidavit thereto shall be required. \par (c) The affidavit of any person sol iciting signatures hereunder shall be verified free of charge by any officer authorized to administer oaths. Petitions so verified shall be prima facie evidence that the signatures thereon are genuine and that the persons signing the same are qualified vo ters. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par Title 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 17207 (1994). \par }\pard \qj \li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 }}}{\insrsid10768034\charrsid5404392 and 18101}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\fs20\insrsid10768034 Title 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 18101 Verification of Signatures. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid10768034 The Election Commission shall verify all signatures contained in any p etition for any initiative, referendum, or recall, to insure that all signatures on the petitions are the signatures of persons registered to vote in the territory. In order to facilitate the verification of signatures on petitions, the Election Commissio n may promulgate rules allowing any proponent to submit petitions to the Election Commission on a staggered schedule, as the signed petitions are received by the proponents, rather than waiting until all petitions have been signed. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par Title 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 18101(1998). \par }}}{\insrsid10768034\charrsid5404392 ; and, second, signatures of ten percent of all registered voters as of the time the proposed initiative measure is submitted to the GEC as required under section 17201.}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 The trial court grounded the invalidation of regulation 2108(c) on the first prerequisite, or the verification requirement.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 For the following two reasons, we find that the trial court erred in this regard. \par }{\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [12]}{\insrsid10768034\charrsid5404392 \tab First, the GEC has not met its burden in establishing that regulation 2108(c) is in conflict with the verification process.}{\insrsid5404392 }{ \insrsid10768034\charrsid5404392 A party challenging a presumptively valid regulation carries a heavy burden.}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 See Mass. Fed}{\i\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid10768034\charrsid5404392 n of Teachers v. Bd. of Educ.}{\insrsid10768034\charrsid5404392 , 767 N.E.2d 549, 557 (Mass. 2002) (}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 A highly deferential standard of review governs a facial challenge to regulations promulgated by a government agency.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ); }{\i\insrsid10768034\charrsid5404392 Tomlinson v. Qualcomm, Inc.}{\insrsid10768034\charrsid5404392 , 118 Cal. Rptr. 2d 822, 826 (2002) (}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 On review, the burden of proof is on the party challenging the regulation, because the administrative agency}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 s action comes before the court with a presumption of correctness and regularity.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 ) (citations omitted).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In order to succeed, the challenging party }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 must establish the absence of any conceivable grounds upon which [the rule] may be upheld,}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 and an agency}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s regulation will not be invalidated }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 unless its provisio ns cannot by any reasonable construction be interpreted in harmony with the legislative mandate.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{ \i\insrsid10768034\charrsid5404392 Mass. Fed}{\i\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid10768034\charrsid5404392 n of Teachers}{\insrsid10768034\charrsid5404392 , 767 N.E.2d at 557 (internal quotations and citations omitted).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Here, it can be fairly inferred that the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s intent in promulgating regulation 2108(c) was to provide both the agency and the proponent a time frame when the agency will notify the proponent about the status of their petition.}{ \insrsid5404392 }{\i\insrsid10768034\charrsid5404392 See }{\insrsid10768034\charrsid5404392 6 Title GAR }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 2100 (1997) (}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 The purpose of these rules and regulations is to implement Public Law 14-23, 3 GCA Chapter 17 and in doing so establish an }{\i\insrsid10768034\charrsid5404392 orderly and efficient method}{\insrsid10768034\charrsid5404392 for the processing of initiative, referendum and legislative submission matters.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ) (emphasis added).} {\insrsid5404392 }{\insrsid10768034\charrsid5404392 Although the Initiative statutes, 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17101-09, do not provide the GEC with a time frame to complete the verification process, the statutes do allow the GEC to promulgate rules and regulations to effectuate the election statutes.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 3 GCA }{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 2103(d), 2104}{ \cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sl480\slmult1\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 } {\fs20\insrsid10768034 3 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 2104 provides: Election Manual. \par }\pard \qj \li720\ri0\sa240\nowidctlpar\faauto\rin0\lin720\itap0 {\fs20\insrsid10768034 It shall be the duty and responsibility of the Commission to prepare a public manual of administrative procedures, rules , regulations and forms to be used in the conduct of elections. After January 1, 2001, all manuals and publications shall be prepared pursuant to the Administrative Adjudication Law. The manual shall set forth the regulations to be followed by all electio n officials, as well as the descriptions of the necessary equipment and forms to be used in election procedures.}}}{\insrsid10768034\charrsid5404392 .}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In enacting regulation 2108(c), the GEC was merely imposing upon itself a time frame within which to complete a task.}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 See ASARCO}{\insrsid10768034\charrsid5404392 , 771 P.2d a t 339 (noting that an agency }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 may fill in gaps of the statutory framework if necessary to effectuate a general statutory scheme}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ); } {\i\insrsid10768034\charrsid5404392 see also Marshall v. McMahon}{\insrsid10768034\charrsid5404392 , 22 Cal. Rptr. 2d 220, 224 (App. Ct. 1993) (}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 [T]he absence of any specific [statutory] provisions regarding the regulation of [an issue] does not mean that such a regulation exceeds statutory authority . . . . The [agenc y] is authorized to fill up the details of the statutory scheme.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ) (quotations and citations omitted) (alterations in original).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 We do not find the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 s mere imposition of }{\i\insrsid10768034\charrsid5404392 when}{\insrsid10768034\charrsid5404392 to complete a statutory duty to be, in and of itself, inherently inconsistent with the performance of that duty.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 \par }{\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [13]}{\insrsid10768034\charrsid5404392 \tab Second, we remain unconvinced by the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 s argument that regulation 2108(c) is inconsistent with the verification procedures in light of the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}} }{\insrsid10768034\charrsid5404392 s failure to aver that compliance with the regulation}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s time lim itation deters them from wholly complying with its statutory obligation to verify the signatures.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The GEC does not contend that the twenty days limitation under the regulation was insufficient time for it to verify all the signatures submitted by Wade, wh ich would then help explain why the GEC failed to provide Wade with a timely notice of the rejection.}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 We also note that regulation 2108(c) was enacted and has been in place since 1977. As the agency conferred by the legislature to effectuate the Electio n Code, we are confident that the GEC intended only to promulgate a regulation that was consistent with its enabling statutes. However, if sometime during the twenty years since the regulation}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s enactment, the GEC found that complying with the regulation}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{ \fs20\insrsid10768034 s time limit resulted in non-compliance with the verification statute, the GEC was well within its discretion to change the regulation. }{\i\fs20\insrsid10768034 See De Beaussaert v. Shelby Tp.}{\fs20\insrsid10768034 , 333 N.W.2d 22, 23 (Mich. Ct. App. 1982) (affirming a commission}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s duty to comply with its own rules because }{ \fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 [n]othing prevents the commission from changing its rule.}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 ). \par }}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Instead, the evidence points to the contrary.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 The GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s admission during trial that they had completed the initial tabulation of the signatures ahead of the twenty-day period establishes the GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s ability to comport with regulation 2108(c) without compromising their statutory duty to verify the signatures in accordance with the Initiative statutes.}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 See }{\insrsid10768034\charrsid5404392 Record on Appeal, tab 10, p. 4 (Appellee}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s Trial Brief, April 26, 2002) (}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 The following day, December 20, 2001, the initial tabulation was completed, and an updated tab ulation form was prepared. . . . The December 20, 2001 updated tabulation sheet indicated that the signatures verified by the GEC fell short of the required number, and therefore the Initiative proposal failed to qualify in accordance with the Election Co de.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 ).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In essence, the }{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 GEC}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s [duty to] perform a verification process to weed out all signers that are ineligible under the Election Code,}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 Record on Appeal, tab 10, p. 8 (Appellee}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 s Trial Brief, April 26, 2002), is not defeated by a self-imposed regulation that requires the agency to complete the process within a certain time frame.}{\insrsid5404392 }{\i\insrsid10768034\charrsid5404392 See Charles A. Beard Classroom Teachers Ass}{\i\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid10768034\charrsid5404392 n v. Bd. of School Trs. of Charles A. Beard Mem}{ \i\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid10768034\charrsid5404392 l School Corp.}{\insrsid10768034\charrsid5404392 , 668 N.E.2d 122 2, 1226 (Ind. 1996) (finding that an agency}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s regulation, which provided for extensions of time in which to file objections comported with its enabling statutes).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 \par }{\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [14]}{\insrsid10768034\charrsid5404392 \tab In sum, we find that regulation 2108(c) is not inconsistent with the Election Code}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s verification requirement.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Thus, the trial court erred in invalidating regulation 2108(c) on that basis. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12863678 {\b\insrsid12863678 \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 B.\tab Ten percent threshold}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [15]}{\insrsid10768034\charrsid5404392 \tab Although we found that the trial court improperly invalidated regulation 2108(c) based on its conflict with the verification requirement, we do find that regulation 2108(c) is invalidated by sections 17211 and 17201}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s ten percent threshold requirement.}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 Notwithstanding the parties}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 and the trial court}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s focus on the regulation}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s inconsistency b ased on the verification process, this issue is within the scope of our review because the central issue in this appeal is whether regulation 2108(c) is inconsistent with the Initiative provisions as a whole. \par }}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Section 17201 expressly mandates that, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 [i]nitiative measures may be proposed by presenting to the Election Commission petitions, as set forth in this Chapter with bona fide signatures of voters equal in number to }{\i\insrsid10768034\charrsid5404392 ten percent}{ \insrsid10768034\charrsid5404392 }{\i\insrsid10768034\charrsid5404392 (10%)}{\insrsid10768034\charrsid5404392 of all registered voters as of the time the proposed initiative measure is submitted to the Election Commission prior to circulation.}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Title 3 GCA }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 17201 (1998) (emphasis added).}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 Wade arg ues for the liberal construction of the Initiative provisions in favor of the proponent in light of the importance of the initiative process. Wade correctly observes that a citizen}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s right to participate in the initiative process is fundamental as reflected by its inclusion in the Guam Organic Act, which provides, }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 [t]he people of Guam shall have the right of initiative and referendum, to be exercised under conditions and procedures specified in the laws of Guam.}{ \fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 Title 48 U.S.C. }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt \f36\fs20}}}{\fs20\insrsid10768034 1422a (1987). However, }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 this right is }{\i\fs20\insrsid10768034 not without limitations }{\fs20\insrsid10768034 ,}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 }{\i\fs20\insrsid10768034 In re Initiative Petition No. 366}{\fs20\insrsid10768034 , 46 P.3d 123, 125 (Okla. 2002) (emphasis added), and a proponent of an initiative must meet certain statutory requirements in order to successfully place the initiative on the ballot. \par }}}{\insrsid10768034\charrsid5404392 \par }{\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [16]}{\insrsid10768034\charrsid5404392 \tab Here, Wade stipulated to the trial court}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 s factual finding that he failed to present the required number of valid signatures.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 If regulation 2108(c) is enforced, the GEC would have to accept Wade}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s petition even though it clearly failed to meet the ten percent threshold requirement.}{ \insrsid5404392 }{\insrsid10768034\charrsid5404392 Such a result would be in direct contravention of sections 17201 and 17211, which explicitly require that all initiative petitions contain valid signatures of ten percent of Guam}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s registered voters.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Therefore, enforcement of the automatic acceptance scheme prescribed under regulation 2108(c) is inconsistent with and is }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 contrary to the plain meaning}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 of the Initiative provisions.}{ \insrsid5404392 }{\i\insrsid10768034\charrsid5404392 Skinner v. Brown}{\insrsid10768034\charrsid5404392 , 27 F.3d 1571, 1575 (Cir. Fed. 1994); }{\i\insrsid10768034\charrsid5404392 see also Davis v. Town of Barrington}{\insrsid10768034\charrsid5404392 , 497 A.2d 1232, 1234 (N.H. 1985) (finding that the regulation}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s automatic acceptance scheme was inconsistent with the board}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s statute, which }{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 clearly reject[s] the policy that an }{\i\insrsid10768034\charrsid5404392 unmeritorious}{ \insrsid10768034\charrsid5404392 application . . . should nonetheless be approved merely because a . . . board takes too long to disapprove it.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 ) (emphasis added).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Accordingly, the trial court should have invalidated regulation 2108(c) based on its inconsistency with the ten percent threshold requirement rather than the verification prerequisite.}{\insrsid10768034 \par }{\insrsid12863678\charrsid5404392 \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 C.\tab Substantial Compliance}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [17]}{\insrsid10768034\charrsid5404392 \tab The trial court held, in the alternative, }{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid10768034\charrsid5404392 that even if . . . regulation [2108(c)] was valid, the Executive Director substantially complied with the regulation by providing the required notice within 20 working days.}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Appellant}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid10768034\charrsid5404392 s Excerpts of Record, tab F, p. 8 (Decision and Order, June 11, 2002).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 In view of our holding that regulation 2108(c) is invalid and therefore, unenforceable, we find it unnecessary to address this alternative ground.}{\cs15\super\insrsid10768034\charrsid5404392 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid10768034 \chftn }{\insrsid10768034 }{\fs20\insrsid10768034 We emphasize, however, that in choosing not to address the substantial compliance issue, our opinion, in effect, does not affirm the trial court}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{ \fs20\insrsid10768034 s recognition of the GEC}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s interpretation of the word }{\i\fs20\insrsid10768034 days}{ \fs20\insrsid10768034 to mean }{\i\fs20\insrsid10768034 working days}{\fs20\insrsid10768034 in regulation 2108(c). }{\i\fs20\insrsid10768034 See }{\fs20\insrsid10768034 Appellee}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s Brief, p. 2. Although we reserve formally opining on this issue, we note the following two reasons that exposes the GEC}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s potential misinterpretation of the word }{\i\fs20\insrsid10768034 day}{\fs20\insrsid10768034 . First, although the word }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 day}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 is not defined within the Election Code or the GEC regulations, it is defined within Title 1 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 1008, appropriately titled }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 Month, Week and Day Defined.}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 Section 1008 provides in relevant part: }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 [D]ay is the period of time between any midnight and the midnight following. Midnight of any given day is 12:00 post meridian (p.m.), the end of the day.}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt \f36\fs20}}}{\fs20\insrsid10768034 Title 1 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 1008 (1996). The commentary to section 1008 notes the definition}{ \fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s general applicability to the rest of the Guam Code, including the provisions governing elections. The commentary provides: \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid10768034 COMMENT: Sections 209-211 were a part of the original Government Code. In 1 959 the Legislature saw fit to add the definition of midnight of a given day in reference to the Governor's action on legislation. }{\i\fs20\insrsid10768034 There is no good reason why such a definition should not be made uniform throughout the whole Code, and is therefore placed in this Chapter}{\fs20\insrsid10768034 . Thus, midnight on Monday would occur at that moment ending Monday and commencing Tuesday. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 \par }\pard \qj \li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid10768034 Title 1 GCA }{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 1008 (1996) cmt. Consequently, the GEC}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s construction of }{\i\fs20\insrsid10768034 day}{\fs20\insrsid10768034 to mean }{ \i\fs20\insrsid10768034 working day}{\fs20\insrsid10768034 is inconsistent with the Guam Code. Second, the GEC}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s internal inconsistency in construing the word was reflected by the GEC legal counsel}{\fs20\insrsid10768034 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid10768034 s admission during oral arguments that in other sections of their enabling statutes, the GEC has construed the word }{\i\fs20\insrsid10768034 day}{\fs20\insrsid10768034 to mean }{\i\fs20\insrsid10768034 calendar day}{\fs20\insrsid10768034 and not }{ \i\fs20\insrsid10768034 working day}{\fs20\insrsid10768034 .}}}{\insrsid10768034 \par }{\insrsid12863678\charrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid10768034\charrsid5404392 IV.}{\insrsid10768034\charrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\b\insrsid12863678 \par }{\b\insrsid10768034\charrsid5404392 [18]}{\insrsid10768034\charrsid5404392 \tab We hold that the trial court erred in finding regulation 2108(c) inconsistent with the Election Code}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s verification requirement.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 However, we do find that the regulation was inconsistent with the Election Code}{ \insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s ten percent threshold prerequisite.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Therefore, the trial court did not err in ultimately invalidating regulation 2108(c).}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 Accordingly, the trial court}{\insrsid10768034\charrsid5404392 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid10768034\charrsid5404392 s judgment is }{\b\insrsid10768034\charrsid5404392 AFFIRMED}{\insrsid10768034\charrsid5404392 .}{\insrsid5404392 \par \par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12863678 {\insrsid10768034\charrsid5404392 FRANCES M. TYDINGCO-GATEWOOD\tab \tab \tab }{\insrsid5404392 }{\insrsid10768034\charrsid5404392 F. PHILIP CARBULLIDO \par }\pard \qj \fi1440\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 Associate Justice\tab \tab \tab \tab \tab Associate Justice}{\insrsid5404392 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12863678 {\insrsid5404392 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5404392 {\insrsid10768034\charrsid5404392 PETER C.}{\insrsid5404392 }{\insrsid10768034\charrsid5404392 SIGUENZA, JR. \par Chief Justice \par }}