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Yamashita v. Gutierrez, }{\fs20\insrsid1902351  Opinion\tab Page }{\field{\*\fldinst {\fs20\insrsid1902351 PAGE }}{\fldrslt {\fs20\lang1024\langfe1024\noproof\insrsid7044087 8}}}{\fs20\insrsid1902351  of 11
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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid1902351\charrsid15016719 IN THE SUPREME COURT OF GUAM}{\insrsid15016719 
\par 
\par }{\b\insrsid1902351\charrsid15016719 ALINE A. YAMASHITA, PH.D.}{\insrsid1902351\charrsid15016719 
\par Plaintiff-Appellant,
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid1902351\charrsid15016719 vs.}{\insrsid1902351\charrsid15016719 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 CARL T.C. GUTIERREZ, in his capacity as the Governor of
\par Guam, and the DEPARTMENT OF EDUCATION, an agency
\par of the Government of Guam,}{\insrsid1902351\charrsid15016719 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 Defendants-Appellees.}{\insrsid15016719 
\par 
\par }{\b\insrsid1902351\charrsid15016719 OPINION}{\insrsid15016719 
\par 
\par }{\insrsid1902351\charrsid15016719 Supreme Court Case No. CVA01-009
\par Superior Court Case No. CV0688-00
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 Filed:}{\b\insrsid15016719  }{\b\insrsid1902351\charrsid15016719 May 13, 2002}{\insrsid1902351\charrsid15016719 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid1902351\charrsid15016719 Cite as:}{\b\insrsid15016719  }{\b\insrsid1902351\charrsid15016719 2002 Guam 6}{\insrsid15016719 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 Appeal from the Superior Court of Guam
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 Argued and submitted on December 6, 2001
\par Hag\'e5t\'f1a, Guam
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\par }{\ul\insrsid1902351\charrsid15016719 Attorney for Plaintiff-Appellant:}{\insrsid1902351\charrsid15016719 
\par Vincent Leon Guerrero, Esq.
\par Leon Guerrero & Calvo, LLC
\par 220 T.S. Tanaka Bldg.
\par Suite 201, Route 4
\par Hag\'e5t\'f1a, Guam 96932
\par \cell 
\par }{\ul\insrsid1902351\charrsid15016719 Attorney from Defendants-Appellees:}{\insrsid1902351\charrsid15016719 
\par J. Patrick Mason, Deputy Attorney General
\par Office of the Attorney General
\par Suite 2-200E Judicial Center
\par 120 O}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 Brien Drive
\par Hag\'e5t\'f1a, Guam 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid1902351\charrsid15016719 \trowd \irow0\irowband0\lastrow 
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\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clshdrawnil \cellx9240\row }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid15016719 
\par }{\insrsid1902351\charrsid15016719 BEFORE:}{\insrsid15016719\charrsid15016719  }{\insrsid1902351\charrsid15016719 PETER C. SIGUENZA, JR. Chief Justice, RICHARD H. BENSON, and SETH FORMAN, Justices }{\i\insrsid1902351\charrsid15016719 Pro Tempore}{
\insrsid1902351\charrsid15016719 .}{\insrsid15016719\charrsid15016719 
\par }{\insrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 SIGUENZA, CJ:}{\insrsid1902351\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 
\par [1]}{\insrsid1902351\charrsid15016719 \tab In 1999, the Board of Education (}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 Board}{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 ), was eliminated by the Guam Legislature and administration over the Department of Education (}{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 Department}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 ) was returned to the Governor of Guam.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The Governor promptly dismissed the Department}{\insrsid1902351\charrsid15016719 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s deputy director, Aline A. Yamashita (}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 Yamashita}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 ),
 who then filed suit for wrongful termination and breach of contract.}{\cs15\super\insrsid1902351\charrsid15016719 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid1902351 \chftn }{\insrsid1902351  }{\fs20\insrsid1902351 Former Director Roland Taimanglo was also terminated and he joined in Yamashita}{\fs20\insrsid1902351 {\field{\*\fldinst 
SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1902351 s suit against the Governor.  The former Director, however, did not appeal the trial court}{\fs20\insrsid1902351 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1902351 s judgment and he is not a party in this appeal..}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Yamashita sought payment of the balance due on the five year term of employment pursuant to the so-called}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1902351\charrsid15016719 memorializing contract}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  entered by her and the Board.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 The trial court held in favor of the Governor and the Department.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Upon review of the facts and applicable law, we affirm the trial court}{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s judgment.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid7044087 {\b\insrsid1902351\charrsid15016719 I.}{\insrsid1902351\charrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [2]}{\insrsid1902351\charrsid15016719 \tab In 1993, Public Law 22-42 created the Territorial Board of Education (}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 Board}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 ), consi
sting of twelve members, seven of whom were to be elected.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The law authorized the Board to administer the Department and hire a director and deputy director.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 In November of 1994, the Board members were elected.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 A legal challenge to the Board resulted in
 a Superior Court ruling in October of 1996 requiring newly drawn districts and a new election.}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 Tainatongo v. Board of Education,}{\insrsid1902351\charrsid15016719 
 SP114-95 (Super. Ct. Guam Oct. 9, 1996).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 That ruling allowed the Board to remain in place until the next regularly scheduled election.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
However, no new districts were ever drawn and no election was ever held pursuant to P.L. 22-42.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 In November of 1996, Yamashita was hired by the Board as deputy director.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 On February 27, 1998, the Board of Education law was amended by Public L
aw 24-142 and four school districts were created, each to have its own elected District Board of Education. The law provided that the existing Board would serve in an interim capacity until the four District Boards were elected.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 The interim Board}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
s responsibilities were to extend only one year after the enactment of P.L. 24-142.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 On March 10, 1999, P.L. 24-142 was struck down by the Superior Court of Guam in }{\i\insrsid1902351\charrsid15016719 
Nelson v. Diaz}{\insrsid1902351\charrsid15016719 , SP254-98 (Super. Ct. Guam Mar. 10, 1999).
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [3]}{\insrsid1902351\charrsid15016719 \tab On March 25, 1999, Public Law 25-03 was enacted.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
It eliminated the Board and reverted the administration of the Department to the Governor.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Two days before P.L. 25-03 was enacted, the Board and Yamashita entered the disputed memorializing contract
 which was allegedly intended to memorialize and ratify the 1996 hiring of Yamashita as deputy director.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
This contract provided Yamashita with an employment term of five years retroactive to when she was initially appointed in 1996.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The contract also co
ntained a provision allowing payment for the full five year term to Yamashita if the contract were rescinded. On March 31, 1999, Yamashita was fired by the Governor.
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [4]}{\insrsid1902351\charrsid15016719 \tab On April 26, 2000, Yamashita filed the underlying Complaint alleging wrongful termination and breach of contract, and seeking lost wages.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 After a bench trial, the trial court held in favor of the Governor and Department, and dismissed the complaint.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 This appeal followed.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid7044087 {\b\insrsid1902351\charrsid15016719 II.}{\insrsid1902351\charrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [5]}{\insrsid1902351\charrsid15016719 \tab This court has jurisdiction over an appeal from a final judgment of the Superior Court of Guam.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Title 7 GCA }{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  3107 (1994).
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid7044087 {\b\insrsid1902351\charrsid15016719 III.}{\insrsid1902351\charrsid15016719 
\par }\pard \qj \fi-720\li720\ri720\nowidctlpar\tx-1440\faauto\rin720\lin720\itap0\pararsid15016719 {\b\insrsid7044087 
\par }\pard \qj \fi-720\li720\ri720\nowidctlpar\tx-1440\faauto\rin720\lin720\itap0\pararsid7044087 {\b\insrsid1902351\charrsid15016719 [6]}{\insrsid1902351\charrsid15016719 \tab Yamashita alleges on appeal that the Governor}{\insrsid1902351\charrsid15016719 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s termination of her employment was without cause and therefore illegal.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Yamashita does not seek reinstatement to the position of deputy director.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Instead, she seeks back pay from the time of termination to the date her statutory term as deputy director was to end.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 Yamashita seeks to enforce a provision within the memorializing contract entered in 1999, only days before her termination.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
This provision provides that if Yamashita is re}{\insrsid7044087 moved for any reason other than }{\insrsid1902351\charrsid15016719 
clear and completely documented evidence that she has acted in a manner that indicates that she has clearly abandoned the official duties of that particular office, engaged in specific instances of conduct that amount to intentional dereliction of duties 
associated with that particular office, or that she has wilfully, knowingly, and voluntarily engaged in acts that constitute felonious conduct . . . [she] shall be entitled to and shall receive the total balance of the amount due under this agreement.

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par Appellant}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s Excerpts of Record, p. A11 (Employment Contract Agreement, Mar. 23, 1999).}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 The Governor argues that the Board had no authority to enter a contract with Yamashita, an unclassified employee.}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 [7]}{\insrsid1902351\charrsid15016719 \tab The trial 
court found that the memorializing contract entered on March 23, 1999 was not a legal contract because the Chairperson of the Board, who executed it, was no longer a member of the Board on that date.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Appellant}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s Excerpts of Record p. C26 (}{\i\insrsid1902351\charrsid15016719 Disision Yan Otden, }{
\insrsid1902351\charrsid15016719 Mar. 23, 2001).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The trial court also found that pursuant to law, the Board had no authority to enter a contract with Yamashita.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 Appellant}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s Excerpts of Record p. C33 (}{
\i\insrsid1902351\charrsid15016719 Yamashita v. Gutierrez}{\insrsid1902351\charrsid15016719 , CVO688-00 (Super. Ct. Guam Mar. 23, 2001)).
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [8]}{\insrsid1902351\charrsid15016719 \tab We begin by determining whether the Board had the statutory authority to contract with Yamashita.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Issues of statutory interpretation are reviewed de novo.}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 People v. Quichocho}{\insrsid1902351\charrsid15016719 , 1997 Guam 13 }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  3.}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid1902351\charrsid15016719 A.}{\b\insrsid15016719  }{\b\insrsid1902351\charrsid15016719 Whether Yamashita was a Contractual Employee.}{\insrsid1902351\charrsid15016719 

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [9]}{\insrsid1902351\charrsid15016719 \tab The parties here do not dispute that Yamashita, as deputy director, was an unclassified employee.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Two statutes generally prohibit the government from entering employment contracts with unclassified employees.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The first provides in part:}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
No contract of employment shall be entered into between the government of Guam and any employee or officer in the unclassified service within t
he government of Guam unless such employment contract is specifically permitted by law or is for a physician or dentist.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Such employment shall be effected through the standard form of personnel action.
}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 This Section shall not affect the ability of the gov
ernment of Guam to contract for temporary services or for specific contracts not involving an employment relationship with the government of Guam, but shall apply to a contract which is essentially a contract for full\_time personal services . . . .

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par Title 4 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  2103.16 (1994).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
The second provides:
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
No contract of employment shall be entered into between any employee, in the unclassified service within the government of Guam unless such employment contract is sp
ecifically permitted by law. Such employment shall be effected through the standard form of personnel action. This Section shall not affect the ability of the Government to contract for temporary services or for specific contracts not involving an employm
ent relationship with the Government.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par Title 4 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  2107 (1994).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Both statutes prohibit contractual hiring of an employee unless }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 specifically permitted by law.}{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Thus, the relevant inquiry is whether P.L. 22-42, which authorized the Board to hire Yamashita, }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
specifically permitted}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  a contract.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The term }{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 specific}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  has been defined as }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
[p]recisely formulated or restricted . . . definite . . . explicit.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 
People v. Thomas}{\insrsid1902351\charrsid15016719 , 156 P.2d 7, 17, 25 Cal. 2d 880, 898 (1945).
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [10]}{\insrsid1902351\charrsid15016719 \tab Public Law 22-42 provides: }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1902351\charrsid15016719 the Territorial Board of Education . . . shall be the governing an
d policy-making body of the Department . . . [and] shall [e]stablish the criteria for the qualifications of, select and hire a Director and Deputy Director of Education, [and] set their respective salaries. . . .}{\insrsid1902351\charrsid15016719 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 P.L. 22-42:2.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 In cases involving statutory construction, the plain language of a statute must be the starting point.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 Pangelinan v. Gutierrez}{\insrsid1902351\charrsid15016719 , 2000 Guam 11, }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL
 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  23.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 We must note that the plain language of the P.L. 22-42 does not contain the word }{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 contract.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 On its face, P.L. 22-42 does not definitely or explicitly authorize a contract; thus, it does not specifically permit the Board to enter a contract.}{\insrsid15016719  }{
\i\insrsid1902351\charrsid15016719 See Thomas}{\insrsid1902351\charrsid15016719 , 156 P.2d at 17, 25 Cal. 2d at 898.
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [11]}{\insrsid1902351\charrsid15016719 \tab A review of other statutes affecting different government agencies shows that the legislature has specifically authorized the contractual hiring of agency heads.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 Section 7106 of Title 12 Guam Code Annotated authorizes the}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Guam Telephone Authority Board of Directors to }{\insrsid1902351\charrsid15016719 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 appoint and fix t
he compensation of a General Manager who shall be its chief executive officer and who shall serve at its pleasure or for the term and under the conditions set forth in a }{\b\insrsid1902351\charrsid15016719 contract}{\insrsid1902351\charrsid15016719 .}{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Title 12 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  7106(a) (1993) (emphasis added).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
The Guam Community College Board of Trustees is authorized to appoint a president, Title 17 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
 31110(a) (1996), }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 who shall serve the College on a }{\b\insrsid1902351\charrsid15016719 contractual}{
\insrsid1902351\charrsid15016719  basis. . . .}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Title 17 GCA }{
\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  31113(a) (1996) (emphasis added).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
The University of Guam Board of Regents is authorized to }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
appoint the President of the University for a specified }{\b\insrsid1902351\charrsid15016719 contractual}{\insrsid1902351\charrsid15016719  term.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Title 17 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
 16110(a) (1996) (emphasis added).
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [12]}{\insrsid1902351\charrsid15016719 \tab 
Thus, had the legislature desired to authorize the contractual hiring of a deputy director of the Department, it would have stated so in P.L. 22-42 as it had done in each of the aforementioned statutes.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 We cannot interpret P.L. 22-42 to exempt the hiring of a deputy director from the effects of 4 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  2103.16 and 2107.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, contrary to Yamashita}{\insrsid1902351\charrsid15016719 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s argument, the notification of personnel action used to hire Yamashita was not an employment contract.}{\insrsid15016719  }{
\i\insrsid1902351\charrsid15016719 See}{\insrsid1902351\charrsid15016719  4 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
 2107 (prohibiting employment contracts with unclassified employees and stating }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
[s]uch employment shall be effected through the standard form of personnel action.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 ).}{
\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 [13]}{\insrsid1902351\charrsid15016719 \tab Yamashita argues that }{\i\insrsid1902351\charrsid15016719 Tainatongo v. Territorial Board of Education, }{\insrsid1902351\charrsid15016719 
SP114-95 (Super. Ct. Guam Oct. 9, 1996), held that P.L. 22-42 permitted the Board to contractually hire the deputy director.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 However, based upon the discussion above, we are unpersuaded by the }{
\i\insrsid1902351\charrsid15016719 Tainatongo}{\insrsid1902351\charrsid15016719  decision. We also note the case of }{\i\insrsid1902351\charrsid15016719 Blaz v. Cruz}{\insrsid1902351\charrsid15016719 , Civ. Appeal No. 84\_
0014A, 1985 WL 56592 (D. Guam App. Div. April 29, 1985), cited by Yamashita.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 This case is distinguishable and inapplicable.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
The issue there was whether Blaz was an employee entitled to grievance procedures.}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 Blaz, }{\insrsid1902351\charrsid15016719 1985 WL 56592, at *4.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 The }{\i\insrsid1902351\charrsid15016719 Blaz}{\insrsid1902351\charrsid15016719  court stated }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1902351\charrsid15016719 Defendants have given no reason why [the notification of personnel action] does not represent a contractual commitment and found that Blaz was an employee.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 Id.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 In the instant case, there is no dispute that Yamashita was an employee.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 Moreover, Blaz was a University of Guam instructor, and Yamashita does not allege whether such instructors are classified or unclassified employees or that instructors can be contractually hired.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, Yamashita fails to show that the Department}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1902351\charrsid15016719 s deputy director position is similar to that of a University of Guam instructor so that the personnel actions of each may be considered contracts.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
We conclude that the Board had no authority to contract with Yamashita.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid7044087 {\b\insrsid7044087 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid1902351\charrsid15016719 B.}{\b\insrsid15016719  }{\b\insrsid1902351\charrsid15016719 The Memorializing Contract}{\insrsid1902351\charrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [14]}{\insrsid1902351\charrsid15016719 \tab Because we hold that the Board had no authority to contract with Yamashita when she was hired in 1996 and that the notification 
of personnel action was not a contract, the Board also did not have authority to enter the memorializing contract with Yamashita in 1999.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, the memorializing contract was void }{
\i\insrsid1902351\charrsid15016719 ab initio}{\insrsid1902351\charrsid15016719  and no terms therein are enforceable.
\par 
\par }{\b\insrsid1902351\charrsid15016719 [15]}{\insrsid1902351\charrsid15016719 \tab As noted previously, the trial court found that pursuant to statute the Chairperson was not a member of the Board when the memorializing contract was entered.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 This issue involves a mixed question of law and fact and our review is }{\i\insrsid1902351\charrsid15016719 de novo}{\insrsid1902351\charrsid15016719 .}{\insrsid15016719  }{
\i\insrsid1902351\charrsid15016719 Town House Dept. Store v. Ahn}{\insrsid1902351\charrsid15016719 , 2000 Guam}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 29, }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  6.
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [16]}{\insrsid1902351\charrsid15016719 \tab Public Law 22-42 created the Board, seven members of which were elected in 1994.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 In October 1996, the }{
\i\insrsid1902351\charrsid15016719 Tainatongo }{\insrsid1902351\charrsid15016719 court decision ordered newly drawn districts and a new election.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
That ruling allowed the Board to remain in place until the next regularly scheduled elections (November 1996 for three Board members and November 1988 for the remaining four).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
However, no new districts were ever drawn and no election was ever held pursuant to the dates for new elections in P.L. 22-42.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Under this law, the elected members of the Board were permitted to serve only until}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 January of 1999:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid7044087 {\insrsid7044087 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 The members of the Board shall be elected by district at the General Election to be held in Nov
ember of 1994. The terms of office of Board members elected pursuant to this section shall commence at 12 o'clock noon on the date of their certification of election by the Election Commission. }{\b\insrsid1902351\charrsid15016719 
The four (4) Board members receiving the highest number of votes shall serve until 12 o'clock noon on the first Monday of January, 1999. The remaining three (3) Board members shall serve until 12 o'clock noon on the first Monday of January, 1997.}{
\insrsid1902351\charrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par P.L. 22-42:10 (emphasis added).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, as of January 1999, the Board should have been completely dissolved.}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 [17]}{\insrsid1902351\charrsid15016719 \tab 
On February 27, 1998, through P.L. 24-142, the legislature reorganized the Department and created separate District Boards, but provided that the existing Board would serve in an interim capacity until the four Boards were elected.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 We note, that the interim Board}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
s responsibilities were to extend only one year after the enactment of P.L. 24-142.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, under P.L. 24-142, the interim Board would have served only until February 27, 1999.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 On March 10, 1999, P.L. 24-142 was struck down in the }{\i\insrsid1902351\charrsid15016719 Nelson}{\insrsid1902351\charrsid15016719  decision.
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [18]}{\insrsid1902351\charrsid15016719 \tab Under either of the aforementioned statutes, the Board was not duly authorized to enter any contract on March 23, 1999.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Thus, the memorializing contract signed on that date was not valid.}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid1902351\charrsid15016719 C.}{\b\insrsid15016719  }{\b\insrsid1902351\charrsid15016719 Severance Pay}{\insrsid1902351\charrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [19]}{\insrsid1902351\charrsid15016719 \tab 
The trial court found that the provision of the memorializing contract awarding Yamashita pay for the balance of an unexpired term of employment contravened the statutory prohibition against severance pay.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 Issues of statutory interpretation are reviewed }{\i\insrsid1902351\charrsid15016719 de novo}{\insrsid1902351\charrsid15016719 . }{\i\insrsid1902351\charrsid15016719 Quichocho}{\insrsid1902351\charrsid15016719 
, 1997 Guam 13 at }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  3.
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [20]}{\insrsid1902351\charrsid15016719 \tab There is no specific provision in P.L. 22-42 or in the notice of personnel action which permits payment 
to Yamashita for the balance of the unexpired term of employment if she were removed.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, even if the notice of personnel action was a valid contract, it would not provide Yamashita with any relief.

\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [21]}{\insrsid1902351\charrsid15016719 \tab Moreover, severance pay is prohibited by statute.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 No person occupying positions in the unclassified service as defined in }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid1902351\charrsid15016719  4102 of this Title and whose services are terminated shall be paid severance pay or meritor
ious pay or both. This Section shall apply to all government instrumentalities in the government of Guam, including autonomous agencies.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Title 4 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  4202(e) (1996).}{
\cs15\super\insrsid1902351\charrsid15016719 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid1902351 \chftn }{\fs20\insrsid1902351 
  Section 4102 defines classified and unclassified positions within the government of Guam and specifically provides that }{\fs20\insrsid1902351 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1902351 
heads of agencies and instrumentalities}{\fs20\insrsid1902351 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1902351  are within the unclassified service.  Title 4 GCA }{\fs20\insrsid1902351 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid1902351  4102(a)(4)(1996).
\par }\pard \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid1902351  }}}{\insrsid1902351\charrsid15016719 
\par }{\b\insrsid7044087 
\par }{\b\insrsid1902351\charrsid15016719 [22]}{\insrsid1902351\charrsid15016719 \tab In }{\i\insrsid1902351\charrsid15016719 Mace v. Conde Nast Publ}{\i\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\i\insrsid1902351\charrsid15016719 ns Inc}{\insrsid1902351\charrsid15016719 ., 237 A.2d 360 (Conn. 1967), severance pay was defined as }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
a form of compensation for the termination of the employment relation, for reasons other than the displaced employees' misconduct, primarily to alleviate the consequent need for economic readjust
ment but also recompense him for certain losses attributable to the dismissal.}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid15016719  }{\i\insrsid1902351\charrsid15016719 
Id.}{\insrsid1902351\charrsid15016719  at 683 (citation omitted).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 In her Complaint, Yamashita sought only the salary and benefits due on the five year employment ter
m, arguing that the termination was without cause.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Under the definition in }{\i\insrsid1902351\charrsid15016719 Mace}{\insrsid1902351\charrsid15016719 
, the damages sought by Yamashita may be categorized as severance pay which is expressly prohibited by 4 GCA }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1902351\charrsid15016719  4202(e).}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 [23]}{\insrsid1902351\charrsid15016719 \tab Yamashita cites }{\i\insrsid1902351\charrsid15016719 Scott v. Gulf Oil Corp}{\insrsid1902351\charrsid15016719 
., 754 F.2d 1499 (9th Cir. 1985) to support her argument that she merely seeks wages, not severance pay.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 However, Yamashita fails to discuss how }{\i\insrsid1902351\charrsid15016719 Scott}{
\insrsid1902351\charrsid15016719  helps her case.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 As the Governor points out, }{\i\insrsid1902351\charrsid15016719 Scott}{\insrsid1902351\charrsid15016719  involved an employee s
eeking to classify severance pay as a }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 payroll practice}{\insrsid1902351\charrsid15016719 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  under the Employee Retirement Income Security Act, rather than an employee welfare benefit.}{\insrsid15016719  }{
\i\insrsid1902351\charrsid15016719 Id.}{\insrsid1902351\charrsid15016719  at 1502.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The Ninth Circuit held that payroll practices do not cover severance pay.}{\insrsid15016719  }{
\i\insrsid1902351\charrsid15016719 Id.}{\insrsid1902351\charrsid15016719  at 1503.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 As it may relate to the instant case, }{\i\insrsid1902351\charrsid15016719 Scott}{\insrsid1902351\charrsid15016719 
 states:}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid7044087 {\insrsid7044087 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 There is good reason for distinguishing severance pay from the designated payroll practices.}{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 The practices described in the regulations require disbursements of funds easily analogized to ordinary wages, and the payments involved invariably take place during 
the term of employment. Severance pay, in contrast, requires an extra disbursement of funds, above and beyond ordinary wages, at or after the termination of employment.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 
\par }{\i\insrsid1902351\charrsid15016719 Id.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Yamashita apparently uses }{\i\insrsid1902351\charrsid15016719 Scott}{\insrsid1902351\charrsid15016719  to distinguish between lost wages, as a payroll p
ractice, and severance pay. Such distinction is irrelevant to the issues in the instant case.}{\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }{\b\insrsid1902351\charrsid15016719 [24]}{\insrsid1902351\charrsid15016719 \tab In fact, }{\i\insrsid1902351\charrsid15016719 Scott}{\insrsid1902351\charrsid15016719  undermines Yamashita}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 s argument.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 It is undisputed that Yamashita does not seek re-employment as deputy director.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 She does not argue that she was entitled to continuous employment and the salaried payments due during that employment.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
Yamashita argues instead that she was fired without cause and thereby entitled to the balance of salary due on the five year term. Thus, it appears that Yamashita seeks back pay while not actually contesting a right to continuous employment.}{
\insrsid15016719  }{\insrsid1902351\charrsid15016719 By seeking a }{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719 
disbursement of funds, above and beyond ordinary wages, . . . }{\i\insrsid1902351\charrsid15016719 after the termination of employment}{\insrsid1902351\charrsid15016719 ,}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid1902351\charrsid15016719  Yamashita seeks severance pay. }{\i\insrsid1902351\charrsid15016719 Scott, }{\insrsid1902351\charrsid15016719 745 F.2d at 1503. (emphasis added);}{
\i\insrsid1902351\charrsid15016719  cf. Haeuser v. Dep}{\i\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid1902351\charrsid15016719 t. of Law,}{
\insrsid1902351\charrsid15016719  1999 Guam 12 (challenging termination from employment, seeking reinstatement and back pay of wages he would have earned if employment had been continuous).}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 
As previously stated, severance pay is prohibited by law.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Thus, contract awarding it is void.}{\cs15\super\insrsid1902351\charrsid15016719 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid1902351 \chftn }{\insrsid1902351  }{\fs20\insrsid1902351 Because we hold that Yam
ashita was not contractually hired and that severance pay is prohibited by law, we need not reach the merits of her claim that the Governor had no cause for her termination from employment.}}}{\insrsid1902351\charrsid15016719 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0\pararsid7044087 {\b\insrsid1902351\charrsid15016719 IV.}{\b\insrsid1902351 
\par }{\insrsid7044087\charrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\b\insrsid1902351\charrsid15016719 [25]}{\insrsid1902351\charrsid15016719 \tab The contractual hiring of an unclassified employee is prohibited unless specifically permitted by law.}
{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The law authorizing the hiring of the Department}{\insrsid1902351\charrsid15016719 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid1902351\charrsid15016719 s deputy director did not specifically permit a contractual hiring.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 Additionally, the memorializing contract awa
rded severance pay which is specifically prohibited by law.}{\insrsid15016719  }{\insrsid1902351\charrsid15016719 The judgment of the trial court is }{\b\insrsid1902351\charrsid15016719 AFFIRMED}{\insrsid1902351\charrsid15016719 . }{\insrsid15016719 

\par 
\par }\pard \qj \fi1440\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 SETH FORMAN\tab \tab \tab \tab }{\insrsid15016719  }{\insrsid1902351\charrsid15016719 RICHARD H. BENSON
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 Justice }{\i\insrsid1902351\charrsid15016719 Pro Tempore}{\insrsid1902351\charrsid15016719 \tab \tab \tab \tab }{\insrsid15016719  }{
\insrsid1902351\charrsid15016719 Justice }{\i\insrsid1902351\charrsid15016719 Pro Tempore}{\insrsid15016719 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid7044087 {\insrsid15016719 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid15016719 {\insrsid1902351\charrsid15016719 PETER C. SIGUENZA, JR.
\par Chief Justice
\par }}