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CHRISTY FOLEY,}{\insrsid12476317\charrsid5598645 \par Real Party in Interest-Appellant.}{\insrsid5598645 \par \par }{\b\insrsid12476317\charrsid5598645 OPINION}{\insrsid5598645 \par \par }{\insrsid12476317\charrsid5598645 Supreme Court Case No. CVA00-018}{\i\insrsid12476317\charrsid5598645 \par }{\insrsid12476317\charrsid5598645 Superior Court Case No. SP0032-96}{\insrsid5598645 \par \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 Filed:}{\b\insrsid5598645 }{\b\insrsid12476317\charrsid5598645 April 3, 2002}{\insrsid5598645 \par \par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 Cite as:}{\b\insrsid5598645 }{\b\insrsid12476317\charrsid5598645 2002 Guam 4}{\insrsid5598645 \par \par }{\insrsid12476317\charrsid5598645 Appeal from the Superior Court of Guam \par Argued and Submitted on February 9, 2001 \par Hag\'e5t\'f1a, Guam}{\i\insrsid5598645 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \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\clwWidth5130\clshdrawnil \cellx5010\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4230\clshdrawnil \cellx9240\pard \ql \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }{\ul\insrsid12476317\charrsid5598645 Appearing for Real Party in Interest-Appellant}{\insrsid12476317\charrsid5598645 : \par Frederick J. Horecky, Esq. \par Law Offices of Horecky & Associates \par 1st Floor J. Perez Building \par 138 Seaton Boulevard \par Hag\'e5t\'f1a, Guam 96910\cell \par }{\ul\insrsid12476317\charrsid5598645 Appearing for Petitioner-Appellee}{\insrsid12476317\charrsid5598645 : \par Marcelene C. Santos, Esq. \par Legal Counsel \par University of Guam \par UOG Station \par Mangilao, Guam 96923\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid12476317\charrsid5598645 \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\clwWidth5130\clshdrawnil \cellx5010\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4230\clshdrawnil \cellx9240\row }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }{\insrsid12476317\charrsid5598645 BEFORE: PETER C. SIGUENZA, JR. Chief Justice,}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 At the time of oral argument, Benjamin J. F. Cruz was the Chief Justice but recused himself from this matter. Justice Peter C. Siguenza, Jr., served as Acting Chief Justice as the senior member of the panel and at the time of publication of this opinion is the Chief Justice of Guam.}}}{\insrsid12476317\charrsid5598645 JOHN A. MANGLONA, Designated Justice, and RICHARD H. BENSON, Justice Pro Tempore}{\insrsid5598645 \par \par }{\b\insrsid12476317\charrsid5598645 SIGUENZA C.J.:}{\insrsid12476317\charrsid5598645 \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [1]}{\insrsid12476317\charrsid5598645 \tab Dr. Christy Foley (}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 Foley}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 ) was terminated from employment as a professor at the University of Guam (}{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 ).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Foley appealed the termination to the Civil Service Commission (}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 Commission}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 ) which voided the termination on a procedural ground.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The University sought judicial review of the Commission}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s decision and the lower court held that the Commission lacked jurisdiction to consider Foley}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s appeal because she was an unclassified employee.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Foley appeals from that judgment.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Upon review of the issues and applicable laws, we hold that Foley was a classified employee at the time of termination with the right to appeal to the Commission, and reverse the judgment of the lower court. \par \par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 I.}{\insrsid12476317\charrsid5598645 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [2]}{\insrsid12476317\charrsid5598645 \tab In August of 1988, Dr. Christy Foley, was hired by the University of Guam as an assistant professor.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 In May of 1993, Foley was alleged to have struck a student.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 In June of 1993, by notice of adverse action, Foley was suspended pending the outcome of a fitness for work examination.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Foley appealed this suspension to the Civil Service Commission in Adverse Action Appeal No.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 CY93-AA22.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The Commission voided the suspension on the ground that it violated the so-called sixty day rule.}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 The sixty day rule is statutory: \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 \par }\pard \qj \li1440\ri1440\nowidctlpar\faauto\rin1440\lin1440\itap0 {\fs20\insrsid12476317 An employee in the classified service who is dismissed, demoted, or suspended shall be given immediate notice of the action, together with a specific statement of the charges upon which such action is based in the manner required by Article 2 of this Chapter. . . . In no event may an employee in the classifie d service be given the notice and statement of the charges required by this Section after the sixtieth (60) day after management knew or should have known the facts or events which form the alleged basis for such action. Any action brought by management in violation of this Section is barred and any decision based on such action is void. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 \par }\pard \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 Title 4 GCA }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 4406 (1996).}}}{ \insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [3]}{\insrsid12476317\charrsid5598645 \tab By October of 1993, Foley had still not reported for the examination and she wa s terminated for insubordination and failure to report to work by issuance of another adverse action.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 In Commission Case No. CY94-AA30, Foley appealed the termination to the Commission.}{ \cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\fs20\insrsid12476317 In the notice of adverse action terminating Foley, the University maintained that its adjudication committee had jurisdiction to hear any appeals of the termination; however, pursuant to a previous Commission decision, }{\i\fs20\insrsid12476317 Matheny, Mezo and Hall v. UOG}{\fs20\insrsid12476317 , Adverse Action Appeals Case Nos. CY92-AA07, CY92-AA08, CY92-AA09 (Ruling on Motion to Dismiss for Lack of Jurisdiction Feb. 18, 1993), she was being served notice of her ability to appeal to the Commission.}}}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The University challenged the Commission}{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s jurisdiction.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 However, the Comm ission held that it had jurisdiction and voided the adverse action for the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s violation of the sixty day rule.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Foley v. Univ. of Guam}{\insrsid12476317\charrsid5598645 , Adverse Action Appeal Case No. CY94-AA30 (Decision and Order Jan. 16, 1996).}{ \cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\fs20\insrsid12476317 Record on Appeal vol. 1, tab 1 (Attachment). This Decision and Order was identified with the wrong case number, CY93-AA22. The Commission later corrected the case number to CY94-AA30. }{\i\fs20\insrsid12476317 Foley v. Univ. of Guam}{ \fs20\insrsid12476317 , Adverse Action Appeal Case No. CY94-AA30 (Notice and Order of Corrected Case No. April 16, 1996).}}}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 On February 15, 1996, the University filed a Petition for Review, Superior Court Special Proceedings Case No. SP0032-96.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 On February 17, 1999, Foley filed a Motion to Dismiss arguing fai lure to prosecute and attacking the trial court}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s jurisdiction and the procedure in which counsel for the University had brought the petition.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 On September 20, 1999, the trial court filed a Decision and Order an d found that it had jurisdiction over the case, and then considered the issue of the Commission}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s jurisdiction over academic personnel of the University.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The trial court held that the Commission did not have jurisdiction over the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s academic personnel and that the Commission decision was void.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The trial court did not reach any other substantive arguments raised in Foley}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s motion and in the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s opposition. \par \par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 II.}{\insrsid12476317\charrsid5598645 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [4]}{\insrsid12476317\charrsid5598645 \tab This court has jurisdiction over an appeal from a final judgment.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Title 7 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 3107, (1994).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [5]}{\insrsid12476317\charrsid5598645 \tab The issue of whether the Commission had jurisdiction over Foley is a matter of statutory interpretation and review is }{\i\insrsid12476317\charrsid5598645 de novo}{ \insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See}{\insrsid12476317\charrsid5598645 }{\i\insrsid12476317\charrsid5598645 Ada v. Gutierrez,}{\insrsid12476317\charrsid5598645 2000 Guam 22, }{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 10.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Further, an agency's interpretation of a statute is a question of law reviewed }{\i\insrsid12476317\charrsid5598645 de novo}{\insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Blas v. Customs & Quarantine Agency}{\insrsid12476317\charrsid5598645 , 2000 Guam 12, }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 12 (citations omitted).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 In reviewing an agency's construction of a statute, the court must reject those constructions that are contrary to clear legislative intent or frustrate the policy that the Legislature sought to implement. }{\i\insrsid12476317\charrsid5598645 See id}{ \insrsid12476317\charrsid5598645 . (citations omitted).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 However, if a statute is silent or ambiguous on a particular point, the court may defer to the agency's interpretation; but that review is limited to whether the agency's conclusion is based on a permissible construction of the statute.}{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 }{\i\insrsid12476317\charrsid5598645 Id}{\insrsid12476317\charrsid5598645 . (citations omitted).}{ \insrsid5598645 }{\insrsid12476317\charrsid5598645 Deference is not given to the agency if its interpretation involves a general question of law such as a jurisdictional or constitutional issue.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Assoc. Gen. Contractors v. Bd. of Oil and Gas and Mining}{\insrsid12476317\charrsid5598645 , 38 P.3d 291, 297 (Utah 2001).}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 III.}{\insrsid12476317\charrsid5598645 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [6]}{\insrsid12476317\charrsid5598645 \tab The issue we address is whether Foley was a classified employee with the right to appeal her termination of employment to the Commission.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 The issue is complicated because, at the time this dispute arose, there were two seemingly conflicting laws: (1) the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s Charter, now codified at Chapter 16 of Title 17 Guam Code Annotated; and (2) Chapter 4 of Title 4 Guam Code Annotated, Personnel Policy and the Civil Service Commission.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 We note that at the present time, there is no apparent conflict as the Legislature has expressly excluded academic employees of the University from the classified and non-classified services; thus, the Commission presently has no jurisdiction over academic personnel.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Title 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4102 (1996).}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 However, this express exclusion was not made until 1995, well after Foley was terminated from employment.}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [7]}{\insrsid12476317\charrsid5598645 \tab As previously stated, the Commission held that it had jurisdiction over the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s academic personnel.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Foley v. Univ. of Guam}{\insrsid12476317\charrsid5598645 , Adverse Action Appeal Case No. CY94-AA30 (Decision and Order Jan. 16, 1996).}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 Record on Appeal vol. I, tab 1 (Attachment).}}}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Specifically, the Commission reasoned that under 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4102 government employees are either classified or unclassified and that because section 4102 and Public Law 19-40 did not categorize academic employees as unclassified, such employees were therefore classified.}{\insrsid5598645 }{ \i\insrsid12476317\charrsid5598645 Id.}{\insrsid12476317\charrsid5598645 (citing }{\i\insrsid12476317\charrsid5598645 Matheny v. Univ. of Guam}{\insrsid12476317\charrsid5598645 , Adverse Action Appeals Case Nos. CY92-AA07, CY92-AA08, CY92-AA09 (Ruling on Motion to Dismiss for Lack of Jurisdiction Feb. 18, 1993).}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 Record on Appeal vol. II, tab 59 (Attachment 1).}}}{ \insrsid12476317\charrsid5598645 It further found that 4 GCA}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4105 mandated the University to adopt personnel rules providing its classified employees the right to appeal to the Commission.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Id.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Ultimately, the Commission ruled that 17 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 16111 did not repeal the applicable sections in 4 GCA Chapter 4.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Id.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 We agree. \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [8]}{\insrsid12476317\charrsid5598645 \tab With respect to the appointment of public employees, the Organic Act provides:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 Appointment of heads; establishment of merit system; civil service commission, removal of commission members}{ \insrsid12476317\charrsid5598645 . The Governor shall, except as otherwise provided in this chapter or the laws of Guam, appoint, by and with the advice and consent of the legislature, all heads of executive agencies and instrumentalities. }{ \b\insrsid12476317\charrsid5598645 The legislature shall establish a merit system and, as far as practicable, appointments and promotions shall be made in accordance with such merit system. The Government of Guam may by law establish a Civil Service Commission to administer the merit system}{\insrsid12476317\charrsid5598645 . Members of the Commission may be removed as provided by the laws of Guam. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par 48 U.S.C. }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 1422c(a) (1987) (emphasis added).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Pursuant to this authority, the Legislature promulgated Chapter 4 of Title 4 Guam Code Annotated, Personnel Policy and the Civil Service Commission, which established a merit system of employment applicable to the entire government of Guam.}{ \insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See}{\insrsid12476317\charrsid5598645 Title 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 4101 (1996).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Employees hired under the merit system are known generally as }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 classified employees.}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4102.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Classified employees are generally entitled to appeal their personnel actions to the Commission.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See}{\insrsid12476317\charrsid5598645 Title 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4105 and 4403(b) (1996).}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [9]}{\insrsid12476317\charrsid5598645 \tab With respect to the University, and pursuant to the Organic Act, the Legislature required that academic personnel be hired on the basis of merit.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Specifically, when Foley was hired in August of 1988, the University statute pertaining to the hiring of academic personnel was Guam Government Code }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 11841 (as amended by Public Law 16-23) which stated:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\ul\insrsid12476317\charrsid5598645 Personnel Rules:}{\ul\insrsid5598645 }{\ul\insrsid12476317\charrsid5598645 Academic Personnel and Administrative Officers}{ \insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Rules and regulations governing selection, compensation, promotion, performance evaluation, a nd disciplinary action affecting academic personnel and administrative officers shall be adopted by the Board in accordance with Sections 4 GCA}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 and 4105.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Such r ules and regulations shall provide for the employment of persons }{\b\insrsid12476317\charrsid5598645 on the basis of merit}{\insrsid12476317\charrsid5598645 , and shall include an orderly and systematic method of recruitment and the establishment of qualified lists for employment purposes.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 For the purpose of this Section, an }{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 administrative officer}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 is defined as one who holds any of the following positions: Associate or Assistant Dean; Associate or Assistant Di rector; Dean or Director; Assistant to the President or Vice-President; provided, however that nothing in this Chapter shall be construed as preventing the Board from establishing other administrative officer positions or abolishing any of the existing po s itions indicated herein and further provided, however, that nothing in this Section nor in any other section of this Chapter involving the outlay of public funds shall become effective unless funds, therefore, shall have been provided in the University's annual budget. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Guam Govt. Code }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 11841 (as amended by Guam Pub. L. 16-23 (Aug. 12, 1981)) (emphasis added).}{ \insrsid5598645 }{\insrsid12476317\charrsid5598645 Section 11841, as it was written, clearly did not exclude academic employees from the classified service.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Moreover, with respect to the government as a whole, at the time Foley was terminated,}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid12476317\charrsid5598645 4102 (as reenacted by P.L. 16-23 and amended by P.L. 16-41)) stated:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\ul\insrsid12476317\charrsid5598645 Classified and Unclassified Services}{\insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 All offices and employment in the Government of Guam shall be divided into classified and unclassified services as follows: \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (a) The unclassified service shall include the positions of: \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (1) elective officials; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (2) judges; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (3) Superior Court marshal, chief clerk, chief probation officer and court administrator of the Superior Court; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (4) heads of agencies and instrumentalities and not more than one (1) secretary for each such officer; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (5) The first assistant, by whatever titl e denominated, to the heads of agencies and instrumentalities stated in paragraph (4) of this Subsection;}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 except that the first assistant to the Police Chief of the Guam Police Department shall be the classified position of Deputy Police Chief and the per son occupying that position, or if that position is vacant, a person occupying another classified position in the Guam Police Department, shall be the Acting Police Chief in the absence of the Police Chief and, notwithstanding any other provision of law, there shall be no Deputy Director of the Guam Police Department;}{\insrsid12476317 \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645\charrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (6) persons employed on a temporary basis; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (7) members of boards and commission; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (8) executive director of the Commissioner's Council; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (9) all offices and employment in the Executive Branch whose appointment are required to be confirmed by the Guam Legislature; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (10) all offices and employment made, by law, to be at the pleasure of any board, commission or officer; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (11) all legislative employees; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (12) members of the Guam Gaming Commission; \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (13) physicians and health care administrators employed at the Guam Memorial Hospital Authority;}{\insrsid12476317 \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645\charrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (14) all positions in the Department of Military Affairs;}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 and \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (15) employees of the office of the Governor and Lieutenant Governor including off\_isl and offices and Government House, as authorized in the applicable appropriation law. \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (16) Property Management Officer at the Department of Corrections. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (b) The classified service shall include all other positions in the government of Guam. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Title 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4102 (as reenacted by Guam Pub. L.16-23:1 (Aug. 12, 1981) and amended by Guam Pub. Ls. 16-41:1 (Sept. 30, 1981); 16-111:23 (Oct. 7, 1982); 16-120:14 (Dec. 18, 1982); 17-5:2 (Apr. 22, 1983); and 18-15:48 (Sept. 28, 1985)).}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Thus, because neither section 4102(a), nor any other section of law, expressly exempted academic employees, such employees fell into the catchall provision of section 4102(b).}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 Section 4102 was not further amended until P.Ls. 20-132:9 (Jan. 24, 1990); 21-17:3 (May 8, 1991); 23-26:1 (June 6, 1995); and 23-45:IV:21 (Oct. 18, 1995). The express exclusions were added by P.L. 23-26:1 which stated in part: \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid12476317 All offices and employment in the Government of Guam, except for employment as academic perso nnel of the Guam Community College (GCC) and the University of Guam (UOG), as the term }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 academic personnel}{ \fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 is defined in enabling laws of GCC and UOG, shall be divided into classified and unclassified services as follows: \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 . . . . \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid12476317 (c) Notwithstanding any law or rule to the contrary, employment as academic personnel of the Guam Community College and the University of Guam shall be governed by rules adopted by the Board of Trustees and the Board of Regents, respectively, in order to provide academic freedom and autonomy to the institutions, as intended by P.L. 14\_77 as to GCC, and P.L. 19\_40 as to UOG. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 \par }\pard \qj \li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid12476317 Guam Pub. L. 25-26:1 (Jan. 6, 1995).}}}{\insrsid12476317\charrsid5598645 \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [10]}{\insrsid12476317\charrsid5598645 \tab We note, as the University illustrates, that the laws distinguished between academic and non-academic employees long before this dispute arose.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Specifically, the University statute pertaining to non-academic personnel stated: \par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 Non-Academic Personnel.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Notwithstanding any law, rule or regulation to the contrary, all non\_academic personnel shall be classified and matters relating to employment of non-academic personnel shall be governed by and in accordance with Title V of the Government Code. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 All employees of the University of Guam who have acquired government of Guam civil service tenure on the date of enactment of this Act and who are transferred to the corporate university in accordance with }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 11845 of this Act shall retain their tenure and status as employees of the government of Guam. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Guam Govt. Code }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 11842 (as amended by Guam Pub. L. 13-194 (Oct. 4, 1976)).}{ \cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{ \fs20\insrsid12476317 Government Code }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 11841 and 11842 were amended by P.L. 19-40 on December 30, 1988, which was after Foley was hired. Public Law 19-40 repealed and reenacted the University}{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt \f36\fs20}}}{\fs20\insrsid12476317 s charter into Chapter 16 of Title 17 Guam Code Annotated. Sections 11841 and 11842 are now codified as 17 GCA }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt \f36\fs20}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 16112 and 16113. Foley argues that P.L. 19-40 does not affect her classified status.}}}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 However, the mere fact that separate statutes govern academic and non-academic employees is not dispositive.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Section 11841 directs the Board of Regents to adopt personnel rules and regulations for academic employees in accordance with 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}} {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 and 4105, which require that personnel rules be made based on the merit system.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Section 11842 directs that non-academic personnel are classified and governed by the laws on classified personnel.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 At the time Foley was hired, there were no laws which expressly or impliedly repealed the applicability of 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 4102 to University academic personnel; thus, they were still part of the classified service with the rights and benefits entitled to such employees by law.}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [11]}{\insrsid12476317\charrsid5598645 \tab On December 30, 1988 (some three months after Foley was hired), P.L. 19-40 was enacted.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 This law repealed and reenacted Chapter 16 of Title 17 Guam Code Annotated as the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s Charter.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The University argues that 17 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 16111, as enacted by P.L. 19-40, expressly repeals the application of any personnel law to its academic personnel except as provided. Foley argues that section 16111 was enacted after she was hi red and was inapplicable to her; moreover, even if the section was applicable, it does not expressly repeal the application of 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 4102 to academic personnel.}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [12]}{\insrsid12476317\charrsid5598645 \tab Section 16111 states:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 Insofar as the provisi ons of this Chapter are inconsistent with the provisions of any other law, the provisions of this Chapter shall be controlling; and in particular but not by way of limitation, except as may be provided in this Chapter, no provision of any law with respect to employment of personnel, shall be applicable to the University unless the Legislature shall specifically so state; provided, however, that the University may utilize in its operations the procedures and facilities provided by any such law or by the exe cutive agencies of the government of Guam. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Title 17 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 16111 (as enacted by Guam Pub. L. 19-40 (Dec. 30, 1988)).}{ \cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{ \fs20\insrsid12476317 Section 16111 has not been amended since P.L. 19-40.}}}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [13]}{\insrsid12476317\charrsid5598645 \tab Repealing statutes are generally either express or implied.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 1 A N}{\insrsid12476317\charrsid5598645 ORMAN}{ \insrsid12476317\charrsid5598645 J. S}{\insrsid12476317\charrsid5598645 INGER}{\insrsid12476317\charrsid5598645 , S}{\insrsid12476317\charrsid5598645 UTHERLAND}{\insrsid12476317\charrsid5598645 S}{\insrsid12476317\charrsid5598645 TAT}{ \insrsid12476317\charrsid5598645 . C}{\insrsid12476317\charrsid5598645 ONST}{\insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 23.07 (5th ed.1992).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 While repeals by implication are disfavored, such repeal may be found when a later statute,[sic] covers the whole situation of an earlier one and is clearly intended as a substitute.}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Topasna v. Superior Court}{\insrsid12476317\charrsid5598645 , 1996 Guam 5, }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 13 (citations omitted).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 In an express repeal, a legislature expressly declares its intent to abrogate an earlier statute.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See Merrill v. Navegar, Inc}{\insrsid12476317\charrsid5598645 .110 Cal.Rptr.2d 370, 387, 26 Cal.4th 465, 487, 28 P.3d 116, 130 (Cal. 2001).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Se ction 16111 actually states two repealer provisions: (1) a repeal against laws inconsistent with Chapter 16 of Title 17 Guam Code Annotated; and (2) a repeal against the applicability of other personnel laws except as specifically provided by the Legislat ure.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 17 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 16111.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 With respect to the first repealer clause, a clause which repeals inconsistent enactments is a general repealing clause.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 1 A N}{\insrsid12476317\charrsid5598645 ORMAN}{ \insrsid12476317\charrsid5598645 J. S}{\insrsid12476317\charrsid5598645 INGER}{\insrsid12476317\charrsid5598645 , S}{\insrsid12476317\charrsid5598645 UTHERLAND}{\insrsid12476317\charrsid5598645 S}{\insrsid12476317\charrsid5598645 TAT}{ \insrsid12476317\charrsid5598645 . C}{\insrsid12476317\charrsid5598645 ONST}{\insrsid12476317\charrsid5598645 . }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 23.08 (5th ed. 1992).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 It has been observed that such a clause should legally be a nullity.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Id.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Such a clause cannot be an express repeal because it does not identify any act to be repealed, or an implied repeal because it does not declare the inconsistency but conditions repeal upon the existence of a conflict.}{ \insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Id.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 However, an inconsistent statute repealer may show legislative intent.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Id.}{ \insrsid5598645 }{\insrsid12476317\charrsid5598645 More important to the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s case is the repeal against other personnel laws unless specifically provided by law.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The specific repeal of section 16111 of }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 any law with respect to employment of personnel}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 identifies the affected acts with reasonable certainty; and in this respect, appears to be an express repeal.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See Id.}{\insrsid12476317\charrsid5598645 }{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 23.07.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 However, this express repeal is not without condition as section 16111 provides that it will not take effect }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 unless the Legislature shall specifically so state.}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Thus, the analysis turns to whether the Legislature specifically applied the Civil Service laws to academic personnel.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 We answer in the affirmative.}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [14]}{\insrsid12476317\charrsid5598645 \tab Section 16112, which governed academic personnel, stated:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 Personnel Rules:}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Academic Personnel and Administrative Officers.}{\insrsid5598645 }{ \b\insrsid12476317\charrsid5598645 Rules and regulations governing select ion, compensation, promotion, performance evaluation and disciplinary action affecting academic personnel and administrative officers shall be adopted by the Board in accordance with Title 4 Guam Code Annotated Sections 4104 and 4105}{ \insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Such rules and regul ations shall provide for the employment of persons on the basis of merit, and shall include an orderly and systematic method of recruitment and the establishment of a list of qualified applicants for employment purposes.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 For the purpose of this Section, an }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 administrative officer}{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 is defined as one who holds any of the following positions: Associate or Assistant Dean; Associate or Assistant Director; Dean or Director; A ssistant to the President or Vice-President; provided, however, that nothing in this Chapter shall be construed as preventing the Board from establishing other administrative officer positions or abolishing any of the existing positions indicated herein a nd further provided, however, that nothing in this Section nor in any other section of this Chapter involving the outlay of public funds shall become effective unless funds therefore shall have been provided in the University's annual budget. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 Academic pers onnel shall have the right to form, join, assist and participate in the management of employee organizations of their choice and to act as organization representative or to refrain from any such activity, without interference, restraint, coercion or discr imination and without fear of penalty or reprisal;}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 provided that, employees shall not participate in the management of an organization or act as an organization representative, where such activity would result in a conflict of interest or otherwise be inco mpatible with law or with the employee's official duties. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 Within ninety (90) days of the effective date of this Act, the Board, in cooperative consultation with the recognized bargaining agent, shall develop and adopt reasonable rules for the settlement o f collective bargaining disputes, including access to impartial mediation and arbitration. \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Title 17 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 16112 (as enacted by Guam Pub. L. 19-40 (Dec. 30, 1988 )) (emphasis added).}{ \cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{ \fs20\insrsid12476317 This section was amended by P.L. 23-26 after this dispute arose. Those amendments are inapplicable in this case.}}}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 This section explicitly applies the procedures and requirements of 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 and 4105 to academic employees.}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [15]}{\insrsid12476317\charrsid5598645 \tab Turning first to section 4104, at the time this dispute arose, this section stated in relevant part:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 Departmental Rules}{\insrsid12476317\charrsid5598645 . Rules }{\b\insrsid12476317\charrsid5598645 subject to criteria established by this chapter}{\insrsid12476317\charrsid5598645 governing the selection, p romotion, performance, evaluation, demotion, suspension and other disciplinary action, shall be adopted by the Board of Directors for the Guam Airport Authority, Board of Directors for Guam Economic Development Authority, Board of Directors for Guam Housi n g Corporation, Board of Commissioners for Guam Housing and Urban Renewal Authority, Judicial Council, the Board of Directors of the Guam Telephone Authority, the Board of Directors of the Port Authority of Guam, the Board of Directors of the Guam Power Au thority, the Board of Education, }{\b\insrsid12476317\charrsid5598645 the Board of Regents of the University of Guam}{\insrsid12476317\charrsid5598645 , the Guam Community College Board of Trustees, the Board of Trustees of the Guam Memorial Hospital Authority and by the Public Utility Agency of Guam with respect to personnel m atters within their respective branches, agencies or departments, and by the Director of Administration as to all other executive branch employment. Such rules shall, to the extent practicable, provide standard conditions for entry into the other matters concerning the government service.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The personnel rules adopted for }{\b\insrsid12476317\charrsid5598645 University of Guam}{\insrsid12476317\charrsid5598645 , Guam Airport Authority, Guam Telephone Authority, Port Authority of Guam, Guam Power Authority, Department of Education, Guam Memorial Hospital Authority, the Director of Administration and by the Public Utility Agency of Guam }{ \b\insrsid12476317\charrsid5598645 shall require that all their classified employee appeals be heard by the Civil Service Commission}{\insrsid12476317\charrsid5598645 .}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The personnel rules adopted for the Judiciary Branch by the Judicial Council shall require that all their classified employee appeals be heard by the Council.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Personnel rules governing any other Executive Branch entities may require that their classified employee appeals be heard by the Civil Service Commission.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Rules concerning the Executive Branch shall take effect upon their approval by the Civil Service Commission, by Executive Order of the Governor and filing with the Legislative Secretary.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Rules concerning the Judicial Branch shall take effect upon adoption by the Judicial Council of Guam. \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 . . . . \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Title 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 (as reenacted by Guam Pub. L. 16-23:1 (Aug. 12, 1981), and}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 amended by Guam Pub. L. 20-03:XII:7 (Apr. 8, 1989)) (emphasis added).}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 Section 4104 is presently codified as 4 GCA }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 4105. This section remained unchanged until 1995 when it was amended by P.L. 23-26:3. The 1995 amendments, made subsequent to this dispute arising, are not applicable in this case.}}}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [16]}{\insrsid12476317\charrsid5598645 \tab Turning next to section 4105, this section stated in relevant part:}{\insrsid12476317 \par }{\insrsid5598645\charrsid5598645 \par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 Personnel Rules.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The personnel rules provided for in }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 of this Chapter shall provide procedures for the employment of persons on the basis of merit, and shall include an orderly and systematic method of recruitment and the establishment of qualified lists for employment purposes.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 They shall provide for a probationary period of not less than three (3) nor more than twelve (12) months for all original appointments, except for original academic appointments at the University of Guam or the Guam Community College, during which time the employee may be dismissed at any time without right of appeal and without right of being given reasons or charg es in writing.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Specific procedures and policies shall be included, governing the following: \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \fi1440\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 . . . \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \fi-720\li2160\ri2160\nowidctlpar\tx-1440\faauto\rin2160\lin2160\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (14)\tab }{\b\insrsid12476317\charrsid5598645 Appeal of an adverse action not inconsistent with }{ \b\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\b\insrsid12476317\charrsid5598645 4175 and 4176 of this Chapter}{\insrsid12476317\charrsid5598645 ; \par }\pard \qj \li0\ri1440\nowidctlpar\faauto\rin1440\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par }\pard \qj \fi-720\li2160\ri1440\nowidctlpar\tx-1440\faauto\rin1440\lin2160\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 (15)\tab In the case of academic employees of the University of Guam or the Guam Community College, and their successor agencies, a system of tenure appropriate to the academic nature of the respective institutions; and \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 . . . . \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 \par Title 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4105 (as reenacted by Guam Pub. L. 16-23:1 (Aug. 12, 1981) (emphasis added).}{ \cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{ \fs20\insrsid12476317 Section 4105 is presently codified as 4 GCA }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid12476317 4106. This section remained unchanged until it was amended in 1995 by P.L. 23-26:4. Those amendments are inapplicable in this case.}}}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Sections 4175 and 4176 governed the procedures for issuing adverse actions, the filing of appeals thereto, and standards for the Commission}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt \f36\fs24}}}{\insrsid12476317\charrsid5598645 s decisions.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See}{\insrsid12476317\charrsid5598645 Guam Pub. L. 16-23:1 (Aug. 12, 1981).}{\cs15\super\insrsid12476317\charrsid5598645 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid12476317 \chftn }{\insrsid12476317 }{\fs20\insrsid12476317 Sections 4175 and 4176 are now codified at 4 GCA }{\fs20\insrsid12476317 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{ \fs20\insrsid12476317 4406 and 4407.}}}{\insrsid12476317\charrsid5598645 \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [17]}{\insrsid12476317\charrsid5598645 \tab Under the aforementioned laws, the Board of Regents was mandated to promulgate personnel rules and regulations for academic employees }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 subject to the criteria of [4 GCA Chapter 4].}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 (as amended by Guam Pub. L. 20-03:XII:7 (Apr. 8, 1989)).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Sections 4104 and 4105 expressly required that the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s classified employees have the right to appeal to the Commission.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Section 4105 required the University to promulgate rules based on the merit system. However, none of these sections of law excluded academic personnel from the classified service.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Thus , we cannot say that 17 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 16111 expressly or impliedly repeals any applicable section of 4 GCA Chapter 4 because section 16112 specifically applied 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 4104, which in turn specifically applied the whole of 4 GCA Chapter 4.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 In the broadest sense, section 16112 appears to permit academic employee appeals to the Commission.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Further, we cannot conclude that there is a repeal of section 4102 because the University s tatutes did not remove academic employees from the classified service.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Thus, the University statutes neither }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 cover the whole situation}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 of, nor are clearly intended as a substitute for, section 4102.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See Topasna}{\insrsid12476317\charrsid5598645 , 1996 Guam 5 at }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 13. \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [18]}{\insrsid12476317\charrsid5598645 \tab We note the listing of autonomous agencies in 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 4104 and that the University appears to be treated the same as those agencies.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The effect here seems to be that the Legislature wanted to ensure that the employees of the autonomous agencies, including the University, be hired on the basis of merit. \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [19]}{\insrsid12476317\charrsid5598645 \tab The Organic Act gives the Legislature the authority to establish the merit system and, as far as practicable, requires that government employees be hired thereunder.}{ \insrsid5598645 }{\insrsid12476317\charrsid5598645 48 U.S.C. }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 1422c(a); }{ \i\insrsid12476317\charrsid5598645 see also}{\insrsid12476317\charrsid5598645 }{\i\insrsid12476317\charrsid5598645 Haeuser v. Department of Law}{\insrsid12476317\charrsid5598645 , 97 F.3d 1152, 1157 (9th Cir. 1996) (}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 If it is }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 practicable}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 to include the position within the merit system, the position must be included in the merit system.}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 (citing 48 U.S.C. }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 1422c(a)).}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Under this authority, the Legislature can also exclude employees from the merit system as it has done for physicians, judges and numerous other positions.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 See}{\insrsid12476317\charrsid5598645 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4102.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 When Foley was hired, and until the time she was terminated from employment, academic personnel were not excluded from the classified service.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The Legislature had ample opportunity to do this in P.L. 19-40 if the clear intent at that time was to give the University complete administrative control over its academic faculty.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Instead, the Legislature opted to require the University to follow the requirements in 4 GCA }{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 4104 and 4105, which made no distinction between classified employees and academic personnel, and explicitly gave classified employees of the University the righ t to appeal to the Commission.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 We hold that P.L. 19-40 did not remove or exclude academic personnel from the classified service. \par }{\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [20]}{\insrsid12476317\charrsid5598645 \tab We note the University}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{ \insrsid12476317\charrsid5598645 s argument that Foley, as a member of the Guam Federation of Teachers Union, was bound by the existing Collective Bargaining Agreement (}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 CBA}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 ) which governed disciplinary action for faculty.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 However, the University failed to raise the issue of the CBA in its Petition for Review of Civil Service Commission Decision.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 Appellant}{\insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s Excerpts of Record tab 1.}{\insrsid5598645 }{ \insrsid12476317\charrsid5598645 As a general rule, this court will not address an argument raised for the first time on appeal.}{\insrsid5598645 }{\i\insrsid12476317\charrsid5598645 Dumaliang v. Silan}{\insrsid12476317\charrsid5598645 , 2000 Guam 24, }{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 12.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Thus, the University}{ \insrsid12476317\charrsid5598645 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12476317\charrsid5598645 s argument is not considered. \par }\pard \qj \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid5598645 \par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid12476317\charrsid5598645 IV.}{\insrsid12476317\charrsid5598645 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\b\insrsid5598645 \par }{\b\insrsid12476317\charrsid5598645 [21]}{\insrsid12476317\charrsid5598645 \tab We hold that Foley was a classified employee at the time of her termination and that the Commission had jurisdiction to hear the appeal of her termination.}{\insrsid5598645 }{\insrsid12476317\charrsid5598645 The Judgment of the trial court is }{\b\insrsid12476317\charrsid5598645 REVERSED}{\insrsid12476317\charrsid5598645 and the case is }{\b\insrsid12476317\charrsid5598645 REMANDED}{\insrsid12476317\charrsid5598645 for proceedings consistent with this opinion.}{\insrsid5598645 \par \par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 RICHARD H. BENSON\tab \tab \tab \tab }{\insrsid5598645 }{\insrsid12476317\charrsid5598645 JOHN A. MANGLONA \par Justice }{\i\insrsid12476317\charrsid5598645 Pro Tempore}{\insrsid12476317\charrsid5598645 \tab \tab \tab \tab }{\insrsid5598645 }{\insrsid12476317\charrsid5598645 Associate Justice}{\insrsid5598645 \par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid5598645 \par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid5598645 {\insrsid12476317\charrsid5598645 PETER C. SIGUENZA, JR. \par Chief Justice \par }}