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{\title IN THE SUPREME COURT OF GUAM}{\author lroberto}{\operator blake_r}{\creatim\yr2005\mo8\dy12\hr9\min5}{\revtim\yr2006\mo3\dy10\hr9\min4}{\version4}{\edmins5}{\nofpages25}{\nofwords10702}{\nofchars61008}{\*\company Superior Court of Guam}
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In re:  Request of Governor Felix P. Camacho Relative to the Interpretation}{\fs20\insrsid410095  \tab Page }{\field{\*\fldinst {\fs20\insrsid410095 PAGE }}{\fldrslt {\fs20\lang1024\langfe1024\noproof\insrsid12603096 25}}}{\fs20\insrsid410095  of 33

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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid410095\charrsid12603096 IN THE SUPREME COURT OF GUAM}{\b\insrsid12603096 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\i\insrsid410095\charrsid12603096 IN RE:}{\b\i\insrsid12603096  }{\b\i\insrsid410095\charrsid12603096 REQUEST OF GOVERNOR FELIX P. CAMACHO
\par RELATIVE TO THE INTERPRETATION AND APPLICATION 
\par OF SECTIONS 6 AND 9 OF THE ORGANIC ACT OF GUAM}{\b\insrsid410095\charrsid12603096 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 Governor Felix P. Camacho
\par }{\insrsid410095\charrsid12603096 Petitioner}{\b\insrsid410095\charrsid12603096 
\par }{\insrsid410095\charrsid12603096 ___________________________________
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 Lieutenant Governor Kaleo S. Moylan
\par }{\insrsid410095\charrsid12603096 Party in Interest}{\insrsid12603096 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 OPINION}{\insrsid12603096 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 Cite as:}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 2004 Guam 10}{\insrsid12603096 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 Filed:}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 June 11, 2004}{\insrsid12603096 
\par 
\par }{\insrsid410095\charrsid12603096 Request for Declaratory Judgment pursuant to
\par section 4104 of Title 7 of the Guam Code Annotated
\par Argued and submitted on May 19, 2004
\par Hag\'e5t\'f1a, Guam}{\insrsid12603096 
\par 
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\par }{\ul\insrsid410095\charrsid12603096 Appearing for Petitioner
\par Governor Felix P. Camacho}{\insrsid410095\charrsid12603096 : 
\par Shannon Taitano, Esq.
\par Office of the Governor of Guam
\par P.O. Box 2950
\par Hag\'e5t\'f1a, Guam 96932
\par 
\par Michael A. Pangelinan, Esq.
\par Rodney J. Jacob, Esq.
\par Calvo and Clark LLP
\par 655 South Marine Drive, Suite 202
\par Tamuning, Guam 96913
\par 
\par }{\ul\insrsid410095\charrsid12603096 Appearing as }{\i\ul\insrsid410095\charrsid12603096 Amicus Curia}{\ul\insrsid410095\charrsid12603096  for
\par Lourdes M. Perez:}{\insrsid410095\charrsid12603096 
\par Peter C. Perez, Esq.
\par Lujan, Aguigui & Perez LLP
\par Pacific News Building, Suite 200
\par 238 Archbishop Flores Street
\par Hag\'e5t\'f1a, Guam 96910\cell 
\par }{\ul\insrsid410095\charrsid12603096 Appearing for Party in Interest 
\par Lieutenant Governor Kaleo S. Moylan}{\insrsid410095\charrsid12603096 : 
\par Michael F. Phillips, Esq.
\par Ricardo D. Bordallo, Esq.
\par Phillips & Bordallo P.C.
\par 410 West O}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Brien Drive, Suite 102
\par Hag\'e5t\'f1a, Guam 96910
\par 
\par }{\ul\insrsid410095\charrsid12603096 Appearing as }{\i\ul\insrsid410095\charrsid12603096 Amicus Curia}{\ul\insrsid410095\charrsid12603096  for
\par Office of the Attorney General}{\insrsid410095\charrsid12603096 :
\par Charles H. Troutman, Deputy Attorney General
\par Guam Judicial Center, Suite 2-200E
\par 120 West O}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Brien Drive
\par Hag\'e5t\'f1a, Guam 96910
\par 
\par }{\ul\insrsid410095\charrsid12603096 Appearing as }{\i\ul\insrsid410095\charrsid12603096 Amicus Curia}{\ul\insrsid410095\charrsid12603096  for
\par }{\i\ul\insrsid410095\charrsid12603096 I Mina}{\i\ul\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\ul\insrsid410095\charrsid12603096 Bente Siete Na Liheslaturan Gu\'e5han}{
\insrsid410095\charrsid12603096 :
\par Therese M. Terlaje, Esq.
\par Law Offices of Therese M. Terlaje, P.C.
\par 194 Hernan Cortes Avenue, Suite 214 
\par Hag\'e5t\'f1a, Guam 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid410095\charrsid12603096 \trowd \irow0\irowband0\lastrow 
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\par 
\par BEFORE:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 F. PHILIP CARBULLIDO, Chief Justice; FRANCES M. TYDINGCO-GATEWOOD, Associate Justice; PETER C. SIGUENZA, JR., Justice }{\i\insrsid410095\charrsid12603096 Pro Tempore}{
\insrsid410095\charrsid12603096 .
\par 
\par }{\b\insrsid410095\charrsid12603096 CARBULLIDO, C.J.:}{\b\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [1]}{\insrsid410095\charrsid12603096 \tab The Governor of Guam, Felix P. Camacho (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  or }{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Governor Camacho}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 ), filed a Request for Declaratory Judgment pursuant to Title 7 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 4104 requesting that this court interpret portions of sections 6 and 9 of the Organic Act of Guam (codified at 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422 and 1422c) relative to the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers of general supervision and control of all bureaus of the executive branch, his power to appoint and remove all heads of executive agencies and instrumentalities as well as of
ficers and employees of the executive branch, and his power to reorganize.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
With regard to the organicity of Public Law 26-169, which created the Guam State Clearinghouse, we hold that its provisions granting exclusive purview over federal funding sources 
to the Guam State Clearinghouse, and final authority over federal fund applications to the Director of the Guam State Clearinghouse are in derogation of the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers of general supervision and control as set forth in section 1422 of the Organic Act, and are therefore inorganic and invalid.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
We also hold that Public Law 26-169}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s designation of the Lieutenant Governor as the Director of the Guam State Clearinghouse does not constitute an appointment, but rather, is a valid exercise of the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power to prescribe executive powers and duties to the Lieutenant Governor, as set forth in sections 1422 and 1423a of the Organic Act.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 We further hold that the inorganic provisions of Public Law 26-169 are severable and thus, we uphold the remaining provisions of Public Law 26-169.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
With respect to the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s issuance of Exec
utive Order 2004-07, we hold that such executive order is void as an invalid exercise of the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s authority to issue executive orders pursuant to section 1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Finally, we hold that the Governor properly e
xercised his Organic Act removal authority in terminating the unclassified employments of Executive Branch employees}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Bertha Duenas and Raymond Blas.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 I.}{\b\insrsid410095 
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"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the Clearinghouse}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 or }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 GSC}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ) was created by Public Law 26-169, enacted on January 5, 2003.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Guam Pub. L. 26-169 (January 5, 2003).}{
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\fs20\insrsid410095 For clarity and ease of reference, the legislation creating the Guam State Clearinghouse will be referred to as Public Law 26-169, and sections therein.  It is recognized, however, that Public Law 26-169 has been codified at Tit
le 5 GCA. }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095  2101 }{\i\fs20\insrsid410095 et seq}{\fs20\insrsid410095 . (2003).}}}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The Clearinghouse is }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
responsible for overseeing all Federal aid programs, grants, loans, direct Federal development, and other Federal funding sources for Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L. 26-169: 1.}{\i\insrsid12603096  }{\insrsid410095\charrsid12603096 Because of the dire financial circumstances faced by the government, the Legislature deemed it important }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 to identify, t
rack and oversee the process of obtaining and receiving sources of Federal funding for Guam, to maintain rapport with the various Federal agencies involved in administering the funding}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  and further declared that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 responsibility for these matters [be] vested at the highest levels of the Executive Branch of government.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\i\insrsid12603096  }{\insrsid410095\charrsid12603096 Accordingly, the Clearinghouse was established within the Office of the Lieutenant Governor of Guam, and granted }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
exclusive purview at the Guam-level over all Federal aid programs, grants, loans, contracts, contributions, appropriations, advances, direct Federal development and other Federal funding sources for Guam.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  2.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Public Law 26-169 created the position of Director to head the Clearinghouse, designated the Lieutenant
 Governor of Guam as the Director, and granted the Director final submission and approval authority over all applications for any }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 Federal aid programs, grants, loans, contracts, contributions, appropriations, advances, direct Federal development, or other Federal funding.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  2, 3.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [3]}{\insrsid410095\charrsid12603096 \tab On June 16, 2003, Governor Camacho issued Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Circular No. 2003-0015, outlining the procedures immediately effective for all off-island travel.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In relevant part, it required that the following documents b
e submitted with all travel requests:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 a written justification for such travel}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  based on several factors identified in the circular; }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 a completed Travel Authorization Request form for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s signature, a memorandum designating the person who will act in an acting capacity during the traveler}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s absence for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s signature, and a completed Administrative Leave Application form for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s signature.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 3 (Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Circular No. 2003-0015, June 16, 2003).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Attached to the}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
circular were forms which complied with the new procedural requirements.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [4]}{\insrsid410095\charrsid12603096 \tab On January 21, 2004, Bertha Duenas (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 Duenas}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
), Interim Manager for the Clearinghouse, issued GSC Memorandum 04-8 which instructed all department 
and agency heads to direct all federally funded travel requests to the Clearinghouse, and in addition, stated that Bureau of Budget Management and Research (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 BBMR}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ) cle
arance was no longer required for such requests.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Addendum, tab 2 (Bordallo Decl., Ex. A at its second page).}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\fs20\insrsid410095   We note that GSC Memorandum 04-8 and GSC Memorandum 04-9 are identified as being created on January 21, 2004.  Governor}{\fs20\insrsid410095 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 
s Addendum, tab 2 (Bordallo Decl., Ex. A)  However, these documents indicate they were stamped and received by the Office of the Governor on January 20, 2004.  While the dates of t
hese documents are not relevant to the matter before this court, we note the discrepancy of the dates on these documents, and we refer to January 21, 2004, as the date the memoranda were purportedly created.}}}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 On the same day, Duenas also issued GSC Memora
ndum 04-9, again to all department and agency heads, similarly informing them to direct all federally funded personnel action requests to the Clearinghouse, and that BBMR clearance was similarly no longer required with respect to such requests.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Addendum, tab 2 (Bordallo Decl., Ex. A at its third page).
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [5]}{\insrsid410095\charrsid12603096 \tab On January 23, 2004, the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Chief of Staff, Anthony Sanchez (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Sanchez}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ), issued Chief of Staff (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 COS}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
) Circular No. 2004-0001, which advised all department and agency heads that all requests for personnel action and travel authorizations require the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s or his designee}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s review, approval and clearance.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Addendum, tab 2 (Bordallo Decl., Ex. B).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 COS Circular No. 2004-0001 further stated, with respect to BBMR, that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [the] powers vested in the Governor of Guam by the O
rganic Act of Guam, Federal rules and regulations governing Federal funds and disbursements, Executive Orders 87-2, 95-1, 98-33 and Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 s Circular 2003-0015 promulgate the that [BBMR] serve as the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s designated staff agency for clearance of all personnel actions and travel authorizations.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [6]}{\insrsid410095\charrsid12603096 \tab On March 25, 2004, Governor Camacho terminated the unclassified employments of Duenas and Raymond Blas (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Blas}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ).}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Duenas was the Chief of Staff in the Office of the Lieutenant Governor and the Interim Manager of the Clearinghouse.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Blas was a staff assistant in the Office of the Lieutenant Governor.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor Camacho authorized Sanchez to execute the personnel action requests to reflect the termination of Duenas and Blas.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 1 (Lieutenant Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Petition for Alternative and Peremptory Writs of Mandate, Ex. C); Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 5 (April 15, 2004 Letter to Lourdes M. Perez).}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Sanchez executed the personnel action requests effective that same day.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Petition for Alternative and Peremptory Writs of Mandate, Ex. C). Notwithstanding the personnel actions, Duenas and Blas continued to report to work pursuant}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
to the direction of Lieutenant Governor Kaleo S. Moylan (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the Lieutenant Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  or }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ).}{\insrsid12603096  
}{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 1 (Lieutenant Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Petition for Alternative and Peremptory Writs of Mandate, }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  14).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [7]}{\insrsid410095\charrsid12603096 \tab 
On March 26, 2004, through Executive Order 2004-07, Governor Camacho transferred the Clearinghouse functions, as enumerated by Public Law 26-169: 3, to BBMR, Bureau Statistics and Plans and executive branch agencies and instrumentalities.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Exec. Order No. 2004-07 (reproduced at Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Petition for Alternative and Peremptory Writs of Mandate, Ex. A)).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In addition, the executive order mandated that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Federal programs affecting the executive branch of the government of Guam shall require the final approval of the Governor of Guam.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [8]}{\insrsid410095\charrsid12603096 \tab On the same day, Attorney General Douglas Moylan issued a legal opinion regarding }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the question of whether the Guam [S]tate Clearinghouse has exclusive jurisdiction over review and approval of federally-funded employe
e recruitment and travel, or whether the Governor may continue his practice of having BBMR and his office also review these documents, thus rendering the GSC process an additional step in the process, not a replacement of existing steps.}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 6 (March 26, 2004 Attorney General Memorandum (Opinion)).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Attorney General}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s March 26, 2004 opinion concluded that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
absence [sic] any federally-mandated requirements in specific grants, a court would most probably permit the GSC function to be lodged with the Lieutenant Governor and that the BBMR can be divested of those same powers.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 However, this does not mean that the Governor is to be excluded from the process.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [9]}{\insrsid410095\charrsid12603096 \tab The following day, in a letter dated March 27, 2004, Lieutenant Governor Moylan sought Governor Camacho}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s reconsideration of his decision to terminate Duenas and Blas, and his decision to transfer the functions of the Clearinghouse to other agencies, as mandated by Executive Order 2004-07.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 7 (March 27, 2004 Letter from Lieutenant Governor Moylan).}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [10]}{\insrsid410095\charrsid12603096 \tab On April 12, 2004, the Compiler of Laws issued an opinion on behalf of Attorney General Moylan (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Compiler}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Opinion}
{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ) in response to Lieutenant Governor Moylan}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s request for a legal opinion from the Attorney General }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 regarding the ability of the Governor to remove the State Clearinghouse from [his] purview and to fire its staff.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Petition for Alternative and Peremptory Writs of Mandate, Ex. G).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Compiler}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Opinion reached the following conclusions: (1) }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
the placement of the Guam State Clearinghouse with the Lieutenant Governor does not violate Guam law, with possible exceptions which cannot be examined without more specifics}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ; (2) }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
the Governor may not, by Executive Order, remove the State Clearinghouse from the Office of the [Lieutenant] Governor, except for those specific functions which do violate the Organic Act}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ; and (3) }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
[because] the removal of the Clearinghouse by Executive Order violates the Organic Act, the firing of [Duenas] by the Governor is invalid,}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  and further concluded that the grant of a separate budget to the Lieutenant Governor indicates that the firing of Blas is also invalid.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Petition for Alternative and Peremptory Writs of Mandate, Ex. G).
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [11]}{\insrsid410095\charrsid12603096 \tab On April 13, 2004, Lieutenant Governor Moylan issued GSC Memorandum 04-18, declaring }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 null and void all instruments facilitating federal grant applications and federal fund encumbrances or expenditures that }{\b\ul\insrsid410095\charrsid12603096 did not}{
\insrsid410095\charrsid12603096  or, heretofore, }{\b\ul\insrsid410095\charrsid12603096 do not}{\insrsid410095\charrsid12603096  receive the final clearance of the Guam State Clearinghouse.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
All employees and/or accountable officers will be held accountable for all expenditures . . . .}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 2 (Bordallo Decl., Ex. A at its first page).}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 In support of this directive, the Lieutenant Governor referenced his Organic Act authority, the mandates of Public Law 26-169, and the Compiler}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Opinion.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [12]}{\insrsid410095\charrsid12603096 \tab In a letter dated April 14, 2004, Lieutenant Governor Moylan informed Lourdes M. Perez, Director of the Department of Administration (}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the Director of DOA}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
}{\insrsid410095\charrsid12603096 ), that the terminations of Duenas and Blas were contrary to law, and thus requested full payment to Duenas and Blas for the pay period ending April 3, 2004.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Petition for Alternative and Peremptory Writs of Mandate, Ex. I at its pp. 4-5).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [13]}{\insrsid410095\charrsid12603096 \tab In a letter dated April 15, 2004 to Attorney General Moylan, Governor Camacho}{\insrsid12603096  }{\insrsid410095\charrsid12603096 expressed his disagreement with the Compiler}
{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Opinion, written on behalf of the Attorney General,
 citing section 1422 of the Organic Act and its grant of powers to the Governor of Guam in support of his position.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Petition for Alternative and Peremptory Writs of Mandate, Ex. H at its pp. 1-3).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [14]}{\insrsid410095\charrsid12603096 \tab On April 20, 2004, Lieutenant Governor Moylan filed a Petition for Alternative and Peremptory Writs of Mandate in the Superior Court, seeking the trial court to compel t
he respondents, Governor Camacho and the Director of DOA, to restore the Clearinghouse within the Office of the Lieutenant Governor, void and dismiss the personnel action terminations of Duenas and Blas, and order the payment of compensation to Duenas and
 Blas.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Addendum, tab 1 (Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Petition for Alternative and Peremptory Writs of Mandate, at pp. 13-14).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [15]}{\insrsid410095\charrsid12603096 \tab On April 26, 2004, Governor Camacho filed the Request for Declaratory Judgment which initiated the matter at bar, seeking a }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 judgment declaring certain provisions of Public Law 26-169 relating to the Guam State Clearinghouse to be Inorganic,}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  and to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 clarify his power to terminate unclassified employees of the Executive Branch, and exercise his reorganization power pursuant to the Organic Act of Guam.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Request for Declaratory Judgment, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  7.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 We assumed original jurisdiction over Governor Camacho}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Request pursuant to Title 7 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  4104, and stayed the proceedings below. 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [16]}{\insrsid410095\charrsid12603096 \tab Pursuant to the briefing schedule issued by this court, Governor Camacho filed his opening brief on May 7, 2004 and his reply brief on May 18, 2004.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The Director of DOA, as }{\i\insrsid410095\charrsid12603096 amicus curiae}{\insrsid410095\charrsid12603096 , filed her brief in support of Governor Camacho on May 7, 2004.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 In opposition, Lieutenant Governor Moylan, with }{\i\insrsid410095\charrsid12603096 amici }{\insrsid410095\charrsid12603096 Attorney General of Guam and }{\i\insrsid410095\charrsid12603096 I Mina}{
\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096  Bente Siete Na Liheslaturan Gu\'e5han}{\insrsid410095\charrsid12603096  (}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ) in his support, filed their briefs on May 14, 2004.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 II.}{\b\insrsid410095 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\insrsid12603096\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 [17]}{\insrsid410095\charrsid12603096 \tab This court has original jurisdiction over requests for declaratory judgment pursuant to Title 7 GCA }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4104, which states:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 The Governor, in writing . . . may request declaratory judgments from the Su
preme Court as to the interpretation of any law, federal or local, lying within the jurisdiction of the courts of Guam to decide, and upon any question affecting the powers and duties of the Governor and the operation of the Executive Branch . . . . The d
eclaratory judgments may be issued only where it is a matter of great public interest and the normal process of law would cause undue delay. Such declaratory judgments shall not be available to private parties. . . .
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\insrsid12603096 
\par }{\insrsid410095\charrsid12603096 7 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4104 (1998).}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [18]}{\insrsid410095\charrsid12603096 \tab We find that the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Request for Declaratory Judgment satisfies the jurisdictional standards set forth in Title 7 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  4104, as he requests an interpretation of local and federal law, and presents questions affecting his powers and duties under the Organic Act and the operation of the Executive Branch.}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 See also}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 In re Request of Governor Felix P. Camacho Relative to the Interpretation and Application of Section 11 of the Organic Act of Guam}{
\insrsid410095\charrsid12603096 , 2003 Guam 16, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  6.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 III.}{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 A.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 History of the Organic Act}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [19]}{\insrsid410095\charrsid12603096 \tab The history of Guam has been marked by plenary control by foreign political and military forces.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The landing of Ferdinand Magellan in 1521 ushered in the Spanish occupation that ended when the United States gained possession of the island in 1898.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  }{
\scaps\insrsid410095\charrsid12603096 Arnold H. Leibowitz, Defining Status:}{\scaps\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 A Comprehensive Analysis of United States Territorial Relations}{\insrsid410095\charrsid12603096 , 316-18 (1989).}
{\insrsid12603096  }{\insrsid410095\charrsid12603096 The autocratic framework introduced by the Spanish-appointed governor continued under the United States, which installed a government controlled by the Navy.}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 See id.}{\insrsid410095\charrsid12603096  at 318-23.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 
s vulnerability to foreign control was emphasized during World War II, when Japanese forces occupied Guam for two and a half years, until United States Armed Forces recaptured Guam on July 21, 1944 and once again brought Guam under United States control.}
{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Leibowitz,}{\insrsid410095\charrsid12603096  at 323-24.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 At present, Guam remains an unincorporated territory of the United States.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Title 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1421a;}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 see also}{\i\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Stanley K. Laughlin, Jr., The Law of United States Territories and Affiliated Jurisdictions}{\insrsid410095\charrsid12603096 , 403 (1995).
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [20]}{\insrsid410095\charrsid12603096 \tab A permanent civilian government is a goal that had long been sought by Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s people.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Self-government saw its first steps with the creation of the Guam Congress, which held its first meeting on February 3, 1917.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Exec. Gen. Order No. 216, January 6, 1917, }{\i\insrsid410095\charrsid12603096 reprinted in}{\insrsid410095\charrsid12603096 
 Guam News Letter, Vol. VIII, No. 7, at 6 (January 1917) (stating that the Guam Congress was created to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 consider questions pertaining to the improvements of the Island and the welfare of the inhabitants, and [then] recommend to the Governor such measures as may be necessary.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ); }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 
Paul Carano & Pedro C. Sanchez, A Complete History of Guam}{\insrsid410095\charrsid12603096  229-30 (1964); }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Laughlin}{
\insrsid410095\charrsid12603096 , at 403 (citing U.S. Navy Report on Guam, 1899-1950, Office of the Chief of Navel [sic] Operations (1951)).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [21]}{\insrsid410095\charrsid12603096 \tab A document stating that the thirty-two signatories }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 have petitioned the Government of the United States to send out a commission . . . to study the situation and needs of the people and to recommend to Congress a plan for the establishment of a permanent Government}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  apparently had the approval of Governor Seton Schroeder in 1901.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Proceedings of Guam Congress, }{\i\insrsid410095\charrsid12603096 reprinted in }{\insrsid410095\charrsid12603096 Guam News Letter Vol. IX, No. 3, at 9-10 (Sept. 1917).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Although it appears that no action was ever taken by the Naval or federal government with regard to this document, the Guam Congress}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
acknowledged this 1901 document, and in 1917, requested that then-Governor Roy Smith send it to the United States.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Proceedings of Guam Congress, }{\i\insrsid410095\charrsid12603096 reprinted in}{
\insrsid410095\charrsid12603096  Guam News Letter Vol. IX, No. 2, 2 (Aug. 1917); Proceedings of Guam Congress, }{\i\insrsid410095\charrsid12603096 reprinted in}{\insrsid410095\charrsid12603096  Guam News Letter Vol. IX, No. 3, 9-10 (Sept. 1917).}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 The Naval Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s response to the Guam Congress was that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [s]ome action has been taken . . . but they are still pending.
}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Proceedings of Guam Congress, }{\i\insrsid410095\charrsid12603096 reprinted in}{
\insrsid410095\charrsid12603096  Guam News Letter Vol. IX, No. 3, 10 (Sept. 1917).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In reality, the Guam Congress was limited to acting in an advisory role to the Naval governor,}{
\scaps\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 who retained virtually all power regarding the administration of Guam.}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Laughlin}{\insrsid410095\charrsid12603096 , at 403; 
}{\scaps\insrsid410095\charrsid12603096 Carano & Sanchez}{\insrsid410095\charrsid12603096 , at }{\scaps\insrsid410095\charrsid12603096 229.}{\scaps\insrsid12603096  }{\insrsid410095\charrsid12603096 Although the Guam Congress held monthly meetings, }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 it tended to act only on matters pleasing to the [Naval G]overnor}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  and its role was so limited that it was }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 disregarded . . . entirely}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 by some Naval Governors.}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Carano & Sanchez}{\insrsid410095\charrsid12603096 , at }{\scaps\insrsid410095\charrsid12603096 230.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [22]}{\insrsid410095\charrsid12603096 \tab It would take another thirty years for the Guam Congress to be given any real power regarding lawmaking on Guam.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
In 1947, a proclamation issued by A
cting Secretary of the Navy John L. Sullivan directed that only the Guam Congress could make changes to existing laws, implicitly providing that such amendments could no longer be effectuated unilaterally through executive order by the Naval Governor. }{
\scaps\insrsid410095\charrsid12603096 Carano & Sanchez}{\insrsid410095\charrsid12603096 , at }{\scaps\insrsid410095\charrsid12603096 347.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Although the Naval Governor retained a veto power, the Guam Congress could override the veto by a two-thirds vote in each of the two congressional houses. }{\i\insrsid410095\charrsid12603096 Id}{\scaps\insrsid410095\charrsid12603096 .}{
\scaps\insrsid12603096  }{\insrsid410095\charrsid12603096 This proclamation, referred to as the Interim Organic Act, was the first substantive grant of power to non-appointed, non-naval officials. }{\i\insrsid410095\charrsid12603096 Id}{
\insrsid410095\charrsid12603096 .}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [23]}{\insrsid410095\charrsid12603096 \tab Although a gradual process, the establishment of a civil government on Guam had been envisioned by President Harry S. Truman, who stated:}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
It is the announced aim of this Government to accord civil government and a full measure of civil rights to the inhabitants of its Pacific territories.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The accomplishment of this objective will be furthered by the transfer of these territories to civilian administration and the enactment of organic legislation at the earliest practicable date.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Letter from President Harry S. Truman to Secretary of the Interior on the Transfer of the Pacific Islands to Civi
lian Administration (May 18, 1949).}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 
\chftn }{\fs20\insrsid410095   This letter may be found at http://trumanlibrary.org/publicpapers/index.php?pid=1118&st=guam&st1=.}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The shift away from Naval governance was furthered on Sept. 7, 1949, when President Truman issued Executive Order 10077, which transferred administration of Guam from the U.S. Navy to the Department of the Interior.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Exec. Order No. 10077, 14 F.R. 5533; }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Carano & Sanchez}{\insrsid410095\charrsid12603096 , at }{
\scaps\insrsid410095\charrsid12603096 353.}{\scaps\insrsid12603096  }{\insrsid410095\charrsid12603096 President Truman immediately appointed Mr. Carlton S. Skinner, who was sworn in twenty days later as the first civilian Governor of Guam.}{
\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Carano & Sanchez}{\insrsid410095\charrsid12603096 , at }{\scaps\insrsid410095\charrsid12603096 355.}{\cs15\scaps\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\insrsid410095   }{\fs20\insrsid410095 
The date of the transfer of Guam was  later changed to August 1, 1950, by Executive Order 10137, apparently to coincide with the passage of the Organic Act of Guam.  Exec. Order No. 10137, 15 F.R. 4241.}}}{\insrsid410095\charrsid12603096  
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [24]}{\insrsid410095\charrsid12603096 \tab It was not until 1950, however, that a civil government of Guam became a reality, when the passage of the Organic Act of Guam created three branches of government.}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See generally}{\insrsid410095\charrsid12603096  Organic Act of Guam, Pub. L. 81-630, codified at 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1421 }{\i\insrsid410095\charrsid12603096 et seq.}{\insrsid410095\charrsid12603096  (1950);}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\fs20\insrsid410095 
  For clarity and ease of reference in this legislative history section, the 1950 enactment of 48 U.S.C. }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095  1421 }{
\i\fs20\insrsid410095 et. seq.}{\fs20\insrsid410095  will be referred to as the }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 Organic Act of Guam,}{\fs20\insrsid410095 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095  and references are to the specific sections of Public Law 81-630 rather than to subsections of the codi
fied statute.  In this way, confusion is avoided when discussing future amendments.  }{\i\fs20\insrsid410095 See infra}{\fs20\insrsid410095  note 7.}}}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 see also}{
\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 S. Rep. No.}{\insrsid410095\charrsid12603096  81-2109 (1950), }{\i\insrsid410095\charrsid12603096 reprinted in}{\insrsid410095\charrsid12603096  1950 U.S.C.C.A.N. 2840;}{
\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\fs20\insrsid410095 
  The House of Representative issued a similar report which }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 repeat[ed] in substance in the Senate Report.}{\fs20\insrsid410095 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095   }{\scaps\fs20\insrsid410095 H.R. Rep. No.}{\fs20\insrsid410095  81-1677 (1950), }{\i\fs20\insrsid410095 reprinted in}{\fs20\insrsid410095 
 1950 U.S.C.C.A.N. 2840, 1950 WL 1716.}}}{\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Carano & Sanchez}{\insrsid410095\charrsid12603096 , at }{\scaps\insrsid410095\charrsid12603096 362.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 A stated purpose of the Organic Act was to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
establish[] democratic local government for the island[.]}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 
S. Rep. No.}{\insrsid410095\charrsid12603096  81-2109 (1950), }{\i\insrsid410095\charrsid12603096 reprinted in}{\insrsid410095\charrsid12603096  1950 U.S.C.C.A.N. 2840, 2841.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Organic Act also }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 defined and limited}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
scope of executive authority.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [25]}{\insrsid410095\charrsid12603096 \tab Under the Organic Act, the position of the civilian Governor mirrored its predecessor under the United States Navy and was given broad powers.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Thus, the Governor was responsible for the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 general supervision and 
control of all executive agencies and instrumentalities of the government of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  Organic Act of Guam 
}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  6(b).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
In addition, the Governor was given the power to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
appoint or remove any officer whose appointment [wa]s not otherwise provided for.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 
Id.}{\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  9(b).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Members of the Senate committee provided clarification regarding employees of the government of Guam:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 Provision is made for the establishment of a merit system for service in the government of Guam.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 At the same time, the Governor is left free to appoint, by and with consent of the Guam Legislature, heads of executive agencies who would be in policy-making positions.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Such a provision is clearly necessary in the interest of efficient government.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 
\par }{\scaps\insrsid410095\charrsid12603096 S. Rep. No.}{\insrsid410095\charrsid12603096  81-2109 (1950), }{\i\insrsid410095\charrsid12603096 reprinted in}{\insrsid410095\charrsid12603096  1950 U.S.C.C.A.N. 2840, 2845.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [26]}{\insrsid410095\charrsid12603096 \tab The }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 legislative power}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  of the twenty-one members of the Legislature }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 extend[ed] to all subjects of legislation of local application not in
consistent with the provisions of th[e Organic] Act and the laws of the United States applicable to Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Organic Act of Guam }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  11.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Finally, the Organic Act created the Federal District Court of Guam, and authorized the creation of local courts as would be provided by the laws of Guam.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{
\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  22(a).
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [27]}{\insrsid410095\charrsid12603096 \tab The Organic Act, although a significant step forward in self-government, nevertheless continued the presidential appointment of Guam}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Governor, its chief executive.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Moreover, Congress did not enact the proposed provision which would have created the Office of Lieutenant Governor. }{\scaps\insrsid410095\charrsid12603096 S. Rep. No.}{\insrsid410095\charrsid12603096  81-2109 (1950), }{\i\insrsid410095\charrsid12603096 
reprinted in}{\insrsid410095\charrsid12603096  U.S.C.C.A.N. 2840, 2845.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Instead, Congress created the position of Secretary of Guam who would }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 have all such executive powers . . . as may be prescribed by this [Organic] Act or assigned to him by the Governor.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Organic Act of Guam }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  7.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Secretary of Guam would be }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 a lesser official . . . who would perform the functions of Lieutenant Governor as well as other administrative duties.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 S. Rep. No.}{\insrsid410095\charrsid12603096  81-2109 (1950), }{\i\insrsid410095\charrsid12603096 reprinted in}{\insrsid410095\charrsid12603096 
 U.S.C.C.A.N. 2840, 2845. 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [28]}{\insrsid410095\charrsid12603096 \tab Not until 1968 did the people of Guam exercise their voices in choosing the executive leaders of their island.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Elective Governor Act, Pub. L. 90-497 (1968) (enacted) (codified at 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422 (1968));}{
\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\insrsid410095   }{
\fs20\insrsid410095 The 1968 amendments to 48 U.S.C. }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 
 1422, which were promulgated by Public Law 90-497, will be referred in this legislative history section as the }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 
Elective Governor Act}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095  and references will be made to sections of the Public Law. }{\i\fs20\insrsid410095 See supra}{
\fs20\insrsid410095  note 5.}}}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  }{\scaps\insrsid410095\charrsid12603096 S. Rep. No.}{\insrsid410095\charrsid12603096  90-216 (1967).}{
\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\insrsid410095   }{
\fs20\insrsid410095 Because the Senate report discussing the Guam Elective Governor Act is not available online, page references are to the report itself and not to the }{\i\fs20\insrsid410095 
United Code Congressional and Administrative News (U.S.C.C.A.N.)}{\fs20\insrsid410095 .  The bill proposed by the Senate was passed }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{
\fs20\insrsid410095 in lieu of the House [of Representatives] bill after substituting for its language much of the text of the House bill.}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{
\fs20\insrsid410095   }{\scaps\fs20\insrsid410095 H.R. Rep.}{\fs20\insrsid410095  No. 90-1521 (1968), }{\i\fs20\insrsid410095 reprinted in}{\fs20\insrsid410095  1968 U.S.C.C.A.N. 3564, 1968 WL 5260.}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Congress saw the passage of the Elective Governor Act and its amendments to the Organic Act as }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
a significant forward step in the development of full local self-government in Guam and toward the fulfillment of the political aspirations of its people.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 S. Rep. No.}{\insrsid410095\charrsid12603096  90-216, at 5 (1967).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The amendments provided for the popular election of the Governor and Lieutenant Governor, to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
be chosen jointly, by the casting by each voter of a single vote applicable to both offices.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Elective Governor Act }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  6.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 These officeholders were required to be }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 bona fide resident of Guam}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  for five years prior to election.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{
\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [29]}{\insrsid410095\charrsid12603096 \tab The now-elected Governor continued to enjoy broad powers regarding the administration of Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s executive branch.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In fact, where the original Organic Act stated that the Governor }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
shall have general supervision and control of all executive agencies and instrumentalities of the government of Guam,}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  Organic Act }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 6(b), the 1968 amendments appeared to expand on this power, providing that the Governor }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
shall have general supervision and control of all the departments, bureaus, agencies, and other instrumentalities of the executive branch of the government of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Elective Governor Act }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  6.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [30]}{\insrsid410095\charrsid12603096 \tab Under the 1968 amendments, references to the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s appointment and removal authority were removed from section 9 of the original Organic Act, although section 1 of the Elective Governor Act contained identical language.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The House of Representatives report noted that the deletion of section 9 from the original Organic Act was the result of the language being }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 duplicative of the powers of the Governor as set forth in section 1 of the [Elective Governor] bill.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 H.R. Rep. No.}{\insrsid410095\charrsid12603096  90-1521 (1968), }{\i\insrsid410095\charrsid12603096 reprinted in}{
\insrsid410095\charrsid12603096  1968 U.S.C.C.A.N. 3564, 3568, 1968 WL 5260.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Notably, Congress rejected a proposal that would have given the President the powe
r to remove the Governor of Guam, as this power }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
would amount to nothing less than a step backward toward colonialism.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 
S. Rep. No.}{\insrsid410095\charrsid12603096  90-216, at 9 (1967).
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [31]}{\insrsid410095\charrsid12603096 \tab 
Furthermore, the 1968 Elective Governor Act amendments deleted the language from the original Organic Act creating the Secretary of Guam, and instead enacted provisions creating the position and office of the Lieutenant Governor, who }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
shall have such executive powers and perform such duties as may be assigned to him by the Governor or prescribed by this Act or under the laws of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Elective Governor Act }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  6. 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [32]}{\insrsid410095\charrsid12603096 \tab The Organic Act of Guam remained substantially unchanged for twenty years following the 1968 Elective Governor Act amendments.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 In 1998, an amendment was passed which extended Guam legislative power, changing language from }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 all subjects of legislation of local application not inconsistent with the provisions of this [Organic] Act and the laws of the United States applicable to Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
all rightful subjects of legislation not inconsistent with the provisions of this [Organic] Act and the laws of the United States applicable to Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Pub. L. 105-291, 105th Cong., }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  4 (1998) (enacted and codified at 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1421g, 1423a).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Such amendment to the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers were enacted to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
provide Guam with a greater measure of self-government.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 H.R. Rep. No.}{
\insrsid410095\charrsid12603096  105-742 (1998), 1998 WL 658802 at *3.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 B.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 Public Law 26-169 and the Guam State Clearinghouse}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [33]}{\insrsid410095\charrsid12603096 \tab Our determination of the organicity of Public Law 26-169 requires us to examine the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers under the Organic Act to enact such law.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Section 1423a of the Organic Act defines the legislature}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 It states that, }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [t]he legislative power of Guam shall extend to all
 rightful subjects of legislation not inconsistent with the provisions of this chapter and the laws of the United States applicable to Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1423a.}{\insrsid12603096  }
{\insrsid410095\charrsid12603096 This court has held that an analysis of the organicity of a local statute }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 must begin with the general rule that legislative enactments are presumed to be constitutional.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 In re Request of Governor Carl T.C. Gutierrez, Relative to the Organicity and Constitutionality of Public Law 26-35, }{\insrsid410095\charrsid12603096 2002 Guam 1, }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  41.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 While Congress in 1998 clarified the legislature}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 provide Guam with a greater measure of self-government,}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  it is a }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
well-established principle in this jurisdiction that the Guam Legislature cannot enact laws which are in derogation of the provisions of the Organic Act.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 H.R. Rep. No.}{\insrsid410095\charrsid12603096  105-742 (1998), 1998 WL 658802 at *3; }{\i\insrsid410095\charrsid12603096 In re Request of Governor Camacho}{
\insrsid410095\charrsid12603096 , 2003 Guam 16 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  15 n.5.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 We underscored this principle in }{\i\insrsid410095\charrsid12603096 In re Request of Governor Gutierrez,}{\insrsid410095\charrsid12603096  when we stated that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
the legislature may not enact a law encroaching upon the Governor's authority and powers which are mandated by the Organic Act.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 In re Request of Governor Gutierrez}{
\insrsid410095\charrsid12603096 , 2002 Guam 1 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  36 (quoting }{\i\insrsid410095\charrsid12603096 
Territorial Prosecutor v. Superior Court}{\insrsid410095\charrsid12603096 , Civ. No. 82-0215, 1983 WL 30224 at *5 (D.Guam App. Div. May 26, 1983)).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Ninth Circuit Court of Appeals similarl
y recognizes that Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s self-government is }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 constrained by the Organic Act}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  and therefore, held that courts must }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
invalidate Guam statutes in derogation of the Organic Act.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 
Haeuser v. Dep}{\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 t of Law,}{\insrsid410095\charrsid12603096  97 F.3d 1152, 1156 (9th Cir.1996).}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Accordingly, we turn to our consideration of whether the provisions of Public Law 26-169 relevant to the case at bar are in derogation of the Organic Act.
\par }{\b\insrsid12603096 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 1.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 General Supervision and Control }{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [34]}{\insrsid410095\charrsid12603096 \tab The first issue we address is whether Public Law 26-169 violates sectio
n 1422 of the Organic Act, which grants the Governor the power of general supervision and control of executive branch bureaus.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  48 U.S.C. }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor Camacho argues, }{
\i\insrsid410095\charrsid12603096 inter alia}{\insrsid410095\charrsid12603096 , that his power to supervise and control the executive branch is impeded by Public Law 26-169, because it grants the Clearinghouse }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 exclusive purview at the Guam-level over all Federal aid programs, grants, loan
s, contracts, contributions, appropriations, advances, direct Federal development and other Federal funding sources for Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L 26-169: 2.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor Camacho also argues that Public Law 26-169 grants the Director of the Clearinghouse }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 final}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  submission and approval authority over all applications }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
for any Federal aid programs, grants, loans, contracts, contributions, advances, direct Federal development, or other Federal funding,}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  which further impedes his power of general supervision and control of the executive branch. }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  3.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [35]}{\insrsid410095\charrsid12603096 \tab Lieutenant Governor Moylan argues that the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s general supervision and control powers may be validly exercised through the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s veto and expenditure powers and further, that Clearinghouse forms sufficiently recognize the Governor as the final approval authority, because the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s signature is required.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Thus, he argues that Public Law 26-169 does not violate the Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power of general supervision and control.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [36]}{\insrsid410095\charrsid12603096 \tab The Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s executive power of general supervision and control is set forth in section 1422 of the Organic Act, which state, in relevant part:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 The executive power of Guam shall be vested in an executive officer whose official title shall be the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Governor of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Section 1422 further states that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 [t]he Governor shall have general supervision and control of all the departments, bureaus, agencies, and other instrumentalities of the executive branch of the government of Guam.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [37]}{\insrsid410095\charrsid12603096 \tab 
We must first determine whether the Guam State Clearinghouse is an entity of the executive branch which is subject to the general supervision and control of the Governor of Guam pursuant to section 1422.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 A review of the plain language of Public Law 26-169 and its expressed legislative intent indicates that the Clearinghouse was created as a }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 bureau}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 within the executive branch of the government of Guam.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Specifically, section 2 of Public Law 26-169 states:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [t]here is within the Office of }{\i\insrsid410095\charrsid12603096 I Segundu Na Maga}{\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 lahi}{\insrsid410095\charrsid12603096  [Lieutenant Governor] a bureau of the government of Guam which shall be known as the }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Guam State Clearinghouse.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L. 26-169: 2.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Further, the Legislature explicitly stated that the matters related to overseeing federal monies should be vested }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 at the highest levels of the Executive Branch of government.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 Id}{\insrsid410095\charrsid12603096 . }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 This statement expresses the legislative intent that the Clearinghouse fall within the executive branch of government.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Cf. Bordallo v. Reyes}{
\insrsid410095\charrsid12603096 , 763 F.2d 1098, 1103 (9th Cir. 1985) (concluding that the Guam Visitors Bureau (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 GVB}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ) is }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 not an instrumentality of the government}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  because the Legislature did not expressly designate GVB as such, as it did with certain other public corporations). Finally, the Clearinghouse was created within the Office of the Lieutenant Governor.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 P.L. 26-169: 2.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Office of the Lieutenant Governor was established in the Organic Act under its subchapter II, entitled }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 The Executive Branch.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Accordingly, we hold that the Guam State Clearinghouse, as an executive branch bureau, is subject to the general supervision and control of the Governor of Guam, as set forth in section 1422 of the Organic Act.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [38]}{\insrsid410095\charrsid12603096 \tab Having found that the Clearinghouse is subject to the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 s general supervision and control power, we turn to the issue of whether Public Law 26-169 is in derogation of such power.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
There is no controlling case authority in this jurisdiction which defines the phrase }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
general supervision and control.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The term }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 general}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  means }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 overall}{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  or }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
principal.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Black}{\scaps\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\scaps\insrsid410095\charrsid12603096 s Law Dictionary}{\insrsid410095\charrsid12603096  812 (5th ed. 1979).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The term }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 supervision}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  is defined as }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [t]he act of m
anaging, directing, or overseeing persons or projects.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Black}{
\scaps\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\scaps\insrsid410095\charrsid12603096 s Law Dictionary}{\insrsid410095\charrsid12603096  (8th ed. 2004).}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Similarly, the term }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 control}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 is defined as }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [t]he direct or indirect power to direct the management and policies of a person or entity, whether through ownership of voting securities, by contra
ct, or otherwise; the power or authority to manage, direct, or oversee.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\scaps\insrsid410095\charrsid12603096 Black}
{\scaps\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\scaps\insrsid410095\charrsid12603096 s Law Dictionary}{\insrsid410095\charrsid12603096  (8th ed. 2004).}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 At least one other court has interpreted the inverse phrase }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
general control and supervision}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  as being }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 commonly understood to mean the direction or management of }{\i\insrsid410095\charrsid12603096 all }{\insrsid410095\charrsid12603096 aspects of 
an operation or business.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Utah Schs Bds. Ass}{\i\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 n v. Utah State Bd. of Educ.}{\insrsid410095\charrsid12603096 
, 17 P.3d 1125, 1129 (Utah 2001) (interpreting the Utah constitution which provided that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
[t]he general control and supervision of the public education system shall be vested in the State Board of Education.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 ).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Utah court further noted its prior interpretation of the phrase as meaning }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 plenary.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 Id}{\insrsid410095\charrsid12603096 . at 1130 (quoting }{\i\insrsid410095\charrsid12603096 In re Woodward}{\insrsid410095\charrsid12603096 , 384 P.2d 110, 112 (Utah 1963) (finding that a }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 statute unconstitutional that gave general control and supervision over juvenile courts to the probate commission}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 )).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 We thus conclude that the Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power of }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 general supervision and control of all the departments, bureaus, agencies, and other instrumentalities of the executive branch of the government of Guam,}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  means that the Governor is vested with the overall power}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
to manage, direct, or oversee such entities.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  1422.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [39]}{\insrsid410095\charrsid12603096 \tab With the above definition in mind, we turn to section 2 of Public Law 26-169, which states:}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 Notwithstanding any other provision of law to the contrary, the Guam State Clearinghouse shall have }{\i\insrsid410095\charrsid12603096 
exclusive}{\insrsid410095\charrsid12603096  purview at the Guam\_level over all Federal aid programs, grants, loans, contracts, contributions, appropriations, advances, direct Federal development and other Federal funding sources for Guam.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 
\par P.L. 26-169: 2.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 On its face, the statutory language vesting the Clearinghouse, an executive branch bureau, with }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 exclusive}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 purview at the Guam-level over the enumerated federal funding sources, divests the Governor of his overall power to manage, direct, or oversee the Clearinghouse.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [40]}{\insrsid410095\charrsid12603096 \tab Section 3 of Public Law 26-169 is equally offensive to the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 s Organic Act powers.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 It states, in relevant part: }{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 With the exception of the Guam Community College and the University of Guam, and notwithstanding any other provision of law to the contrary, }
{\i\insrsid410095\charrsid12603096 no application}{\insrsid410095\charrsid12603096  for any Federal aid programs, grants, loans, contracts, contributions, advances, direct Federal development, or other Federal funding }{\i\insrsid410095\charrsid12603096 
shall be submitted or deemed approved on behalf of the government of Guam or any agency, division, office, department or instrumentality thereof, or any public corporation, without the final approval of the Director of the Guam State Clearinghouse}{
\insrsid410095\charrsid12603096 .}{\insrsid410095 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  3. (emphasis added).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The plain language of the statutory section emphasized above, which confers upon the Director of the Clearinghouse the }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 final}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  submission and approval authority for all federal fund related applications, runs afoul of the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power of general supervision and control of the Clearinghouse.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Thus, under the current statutory scheme, the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s overall ability to manage, direct, or o
versee the Clearinghouse is frustrated.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Moreover, we cannot reasonably find that these violations of the Organic Act are ameliorated through the use of Clearinghouse forms which provide a signature line for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s approval of federal funding applications.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Such forms do not, in our opinion, transform an otherwise inorganic statutory provision into an organic one.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [41]}{\insrsid410095\charrsid12603096 \tab Accordingly, we find that the statutory provisions granting }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 exclusive}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 purview over federal fund sources to the Clearinghouse, and }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 final}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 submission and approval authority over all federal fund applications to the Director of the Clearinghouse, are in derogation of section 1422 of the Organic Act, which grants the Governor the power of general supervision and control over executive branch 
bureaus.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  1422;}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 In re Request of Governor Camacho}{\insrsid410095\charrsid12603096 , 2003 Guam 16 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  15 n.5;}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 In re Request of Governor Gutierrez}{\insrsid410095\charrsid12603096 , 2002 Guam 1 at }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  36;}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Haeuser, }{\insrsid410095\charrsid12603096 
97 F.3d at 1156.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 We therefore hold that such provisions violate the Organic Act and thus, are invalid.}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\insrsid410095   }{\fs20\insrsid410095 
It is significant to note that the issue of whether the provisions of Public Law 26-169 are in conflict with sp
ecific federal grants or related federal requirements has not been presented to us for declaratory judgment.  We therefore reserve decision on such issues. }}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See In re Request of Governor Camacho}{
\insrsid410095\charrsid12603096 , 2003 Guam 16 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  15 n.5;}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 In re Request of Governor Gutierrez}{\insrsid410095\charrsid12603096 , 2002 Guam 1 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  36; }{\i\insrsid410095\charrsid12603096 Haeuser, }{\insrsid410095\charrsid12603096 97 F.3d at 1156.}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 2.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 Appointment Powers}{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [42]}{\insrsid410095\charrsid12603096 \tab The next issue we address is whether the relevant sections of Public Law 26-169 violate the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s appointment powers as provided in sections 1422 and 1422c(a) of the Organic Act.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Governor Camacho, with }{
\i\insrsid410095\charrsid12603096 amicus}{\insrsid410095\charrsid12603096  Lourdes M. Perez, as the Director of DOA, argue that the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 s power to appoint the head of the Clearinghouse and officers of the executive branch is an executive function, which must be exercised by the Governor.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
They further argue that the Legislature, through Public Law 26-169, invalidly exercised the appointment power which is reserved only for the Governor, and thus also violated the separation of powers doctrine.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [43]}{\insrsid410095\charrsid12603096 \tab Lieutenant Governor Moylan, with }{\i\insrsid410095\charrsid12603096 amici }{\insrsid410095\charrsid12603096 Attorney General Moylan and the Guam Legislature, argue that Pu
blic Law 26-169, including its designation of the Lieutenant Governor as Director of the Clearinghouse, is not an appointment but rather is a legislative prescription of executive powers and duties, which is allowed by the Organic Act.}{\insrsid12603096  
}{\insrsid410095\charrsid12603096 They further argue that, if this court finds that an appointment has occurred, the Legislature is nevertheless authorized by the Organic Act to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provide}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 for the}{\insrsid12603096  }{\insrsid410095\charrsid12603096 appointment of the Director of the Clearinghouse, and thus, Public Law 26-169 is a valid exercise of the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Finally, the Lieutenant Governor and }{\i\insrsid410095\charrsid12603096 amici}{
\insrsid410095\charrsid12603096  argue that the separation of powers doctrine is not violated by the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s designation, or appointment, of the Lieutenant Governor as the Director of the Clearinghouse.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [44]}{\insrsid410095\charrsid12603096 \tab The Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s appointment powers are set forth in sections 1422 and 1422c(a) of the Organic Act.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Section 1422 provides for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power to appoint officers and employees of the executive branch and states, in relevant part, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
[the Governor] shall appoint, and may remove, all officers and employees of the executive branch of the government of Guam, except as otherwise provided in this or any other Act of Congress, or under the laws of Guam . . .}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Section 1422c(a) provides for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power to appoint the heads of executive agencies and instrumentalities.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Under this section, }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
[t]he 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.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  1422c(a).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [45]}{\insrsid410095\charrsid12603096 \tab With respect to the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s authorization to prescribe executive powers and duties to the Lieutenant Governor, section 1422 of the Organic Act provides, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [t]he Lieutenant Governor shall have such executive powers and perform such powers and duties as may be assigned to him by the Governor or prescribed by this chapter or under the laws of Guam.}
{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Under
 this section, it is clear that the Legislature is granted the authority to prescribe executive powers and duties, so long as such duties are not inconsistent with other Organic Act provisions.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 
See also}{\insrsid410095\charrsid12603096  48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1423a (}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
The legislative power of Guam shall extend to all rightful subjects of legislation not inconsistent with the provisions of this chapter and the laws of the United States applicable to Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [46]}{\insrsid410095\charrsid12603096 \tab 
Accordingly, the threshold issue we must decide is whether the Legislature, in mandating that the Lieutenant Governor serve concomitantly as Director of the Clearinghouse, has prescribed the Lieutenant Governor w
ith an executive power or duty, as contemplated and authorized by sections 1422 and 1423a of the Organic Act, or whether in so doing the Legislature in fact exercised the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power of appointment, thus implicating the appointments clauses found at sections 1422 and 1422c(a) of the Organic Act, and raising separation of powers concerns.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [47]}{\insrsid410095\charrsid12603096 \tab Turning to case law for guidance, in }{\i\insrsid410095\charrsid12603096 Southern Pac. Co. v. Bartine}{\insrsid410095\charrsid12603096 , the law in question provided, }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [a] Railroad Commission is hereby created, to be composed of three commissioners.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The Governor, the Lieutenant\_Governor, and the Attorney\_General shall constitute a railroad board for the purpose of appointing such commissioners.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Southern Pac. Co. v. Bartine}{\insrsid410095\charrsid12603096 , 170 F. 725 (C.C.D. Nev. 1909) (quoting St. Nev. 1907, p. 73, ch. 44 }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
There, the court considered whether the legislature exercised the power of appointment.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Finding no exercise of the appointment power, the court held:}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 
If in the statute in question certain non office holding individuals were designated by name to be members of and to constitute the railroad board, undoubtedly it would be an appointment by the Legislature.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 But this is not the case.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The duty of serving as members of the railroad board and of appointing commissioners is by the act attached and added to the duties and powers of the offices of Governor, Lieutenant Governor, and Attorney General.}{\insrsid410095 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 746.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [48]}{\insrsid410095\charrsid12603096 \tab Similarly, in the case of }{\i\insrsid410095\charrsid12603096 Shoemaker v. United States}{\insrsid410095\charrsid12603096 
, Congress enacted a statute which established a five-member commission to oversee the development of a park in the District of Columbia.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Shoemaker}{\insrsid410095\charrsid12603096 
, 147 U.S. 282, 301, 13 S. Ct. 361, 391 (1893).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The statute provided that three of the commission members would be appointed by the President, with the advice and consent of the Senate, and the remaining two would be }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the Chief of Engineers of the Army}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  and }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the Engineer Commissioner of the District of Columbia.}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 284, 13 S. Ct. at 363.}{\insrsid12603096  
}{\insrsid410095\charrsid12603096 The }{\i\insrsid410095\charrsid12603096 Shoemaker}{\insrsid410095\charrsid12603096  Court held that the officers need not be appointed, and held, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 it cannot be doubted, and it has frequently been the case, that Congress may increase the power and duties of an e
xisting office without thereby rendering it necessary that the incumbent should be again nominated and appointed.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 300-01, 13 S. Ct. at 391.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In considering the facts before it, the }{
\i\insrsid410095\charrsid12603096 Shoemaker}{\insrsid410095\charrsid12603096  Court stated that the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
duty which the military officers in question were called upon to perform cannot fairly be said to have been dissimilar to, or outside of the sphere of their [existing] official duties.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 301, 13 S. Ct. at 391.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [49]}{\insrsid410095\charrsid12603096 \tab In }{\i\insrsid410095\charrsid12603096 Armstrong v. Townsend}{\insrsid410095\charrsid12603096 
, 8 F.Supp. 953 (D.C.S.D. Ind. 1934), the Indiana Lieutenant Governor was made a member of the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
Department of Commerce and Industries.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
 at 954.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The provisions of the act creating the department stated:
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 That the department of commerce and industries shall be in charge of the board of department of commerce and industries, which bo
ard shall consist of the governor, the lieutenant\_
governor, and three other persons, one of whom shall be designated by the governor as the chief administrative officer thereof; and in the discretion and upon the direction of the governor such additional n
umber of persons as he may direct from time to time, not to exceed five.}{\insrsid410095 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  (quoting Acts Ind. 1933, ch. 4, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  17 at 12).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Under the above authority, the Indiana Governor named the Lieutenant Governor as chief ad
ministrative officer of the department.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The }{\i\insrsid410095\charrsid12603096 Armstrong}{\insrsid410095\charrsid12603096  court pointed out that the legislature later passed another law creating the }
{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Division of Agriculture}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  to exist under the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 Department of Commerce and Industries,}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  and providing that}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 the chief administrative officer of the }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 department of commerce and industries}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  shall be the administrative and executive officer of the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 division of agriculture.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 954 (quoting Acts Ind. 1933, ch. 257, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1 at 1140).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Lieutenant Governor, therefore, as the chief administrative officer
 of the Department of Commerce and Industries, became the administrative and executive officer of the Division of Agriculture.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The }{
\i\insrsid410095\charrsid12603096 Armstrong}{\insrsid410095\charrsid12603096  court held, in response to the issue of whether the legislature created an additional office for the Lieutenant Governor, that }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
the legislation in question . . . did not create a new office to be filled by the Lieutenant Governor, but simply enlarged his duties in the department of the government of which he is a member . . . .}{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 958.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Cf. State ex rel. Att}{
\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 y Genl v. Kennon}{\insrsid410095\charrsid12603096 
, 7 Ohio St. 546, 572 (1857) (Swan, J., concurring).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Judge Swan explained circumstances in which he believed that the appointment power would have been exercised, stating that: 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 
If the general assembly conferred upon the incumbent of the gubernatorial chair official public powers as an individual, so that he would continue to exercise the power
s thus conferred, whether he continued to hold the office of governor or not, it would seem quite manifest, to my mind, that the general assembly created an office in such case, and exercised the appointing power.
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 
\par }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [50]}{\insrsid410095\charrsid12603096 \tab With the above principles in mind, we examine section 2 of Public Law 26-169, which provides:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 The Guam State Clearinghouse shall be headed by a Director, who shall be}{\i\insrsid410095\charrsid12603096  I Segundu Na Maga}{\i\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 lahi}{\insrsid410095\charrsid12603096 .}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Applying the cases discussed }{\i\insrsid410095\charrsid12603096 supra}{\insrsid410095\charrsid12603096 , we hold that the Legislature}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
designation of the Lieutenant Governor as the Director of the Clearinghouse constitutes an }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
enlarge[ment of] his duties}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 as an existing officer of the executive branch, and does not constitute an exercise of the appointment power.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Armstrong}{\insrsid410095\charrsid12603096 , 8 F.Supp. at 958; }{
\i\insrsid410095\charrsid12603096 Southern Pac. Co.}{\insrsid410095\charrsid12603096 , 170 F. at 746.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
The Legislature has not designated by name any individual in a non office holding position to sit as the Director of the Clearinghouse.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  }{
\i\insrsid410095\charrsid12603096 Southern Pac. Co.}{\insrsid410095\charrsid12603096 , 170 F. at 746 (stating that if }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 non office holding individuals were designated by name to be members of and to constitute the railroad board, undoubtedly it would be an appointment by the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Rather, Public Law 26-169 }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 attached and added to the duties and powers}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  of his office as Lieutenant Governor.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  at 746.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [51]}{\insrsid410095\charrsid12603096 \tab Consequently, we hold that the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s appointment powers under sections 1422 and 1422c(a) of the Organic Act are not implicated by Public Law 26-169.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
We further hold that the provision of Public Law 26-169, designating the Lieutenant Governor as the Director of the Clearinghouse, is expressly authorized by section 1422 of the Organic Act, and is therefore a}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 valid exercise of the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers.}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422, 1423a.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [52]}{\insrsid410095\charrsid12603096 \tab 
In holding that the Legislature has not exercised the power of appointment, but rather, has validly prescribed executive powers and duties to the Lieutenant Governor, we are nonetheless}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
tasked to consider whether, in assigning such duties to the Lieutenant Governor, the separation of powers doctrine has been violated.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 We stated in }{\i\insrsid410095\charrsid12603096 People v. Perez}{
\insrsid410095\charrsid12603096 , in considering the separation of powers issue:}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 In determining whether the Act disrupts the proper balance between the coordin
ate branches, the proper inquiry focuses on the extent to which it prevents the Executive Branch from accomplishing its constitutionally assigned functions. Only where the potential for disruption is present must we then determine whether the impact is ju
stified by an overriding need to promote objectives within the constitutional authority of Congress.}{\insrsid410095 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\i\insrsid410095\charrsid12603096 People v. Perez}{\insrsid410095\charrsid12603096 , 1999 Guam 2, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  17 (citations omitted).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Under this standard, we developed the fo
llowing two-part test for determining whether a separation of powers violation has occurred, stating: }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
(1) whether the statutory provision prevents the accomplishment of constitutional functions and (2) }{\i\insrsid410095\charrsid12603096 if so}{\insrsid410095\charrsid12603096 , wh
ether the disruptive impact is justified by any overriding constitutional need.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }{
\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  (emphasis added).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Thus, if the statutory provision in question does not prevent the Governor from accomplishing his constituti
onal functions, we need not consider part two of the test and no separation of powers concern exists.}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [53]}{\insrsid410095\charrsid12603096 \tab In }{\i\insrsid410095\charrsid12603096 State ex rel. Link v. Olson}{\insrsid410095\charrsid12603096 
, the court recognized that the separation of powers doctrine imposes limitations on the legislature to enact laws regarding constitutional officers.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 State ex rel. Link v. Olson}{
\insrsid410095\charrsid12603096 , 286 N.W.2d 262, 273 -274 (N.D. 1979) (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
Every constitutional officer derives his power and authority from the constitution, the same as the Legislature does, and the Legislature,}{\i\insrsid410095\charrsid12603096  in the absence of express constitutional authority}{
\insrsid410095\charrsid12603096 , is as powerless to add to a constitutional office duties foreign to that office.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 )}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In }{\i\insrsid410095\charrsid12603096 Olson}{\insrsid410095\charrsid12603096 , in the absence of constitutional author
ity to assign duties to the lieutenant governor, the court held that the legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s designation of the lieutenant governor as the federal aid coordinator was unconstitutional.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In relevant contrast, the O
rganic Act, which functions as Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s constitution, expressly authorizes the Legislature to prescribe executive powers and duties to the Lieutenant Governor.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  48 U.S.C. }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422, 1423a.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Therefore, applying the first part of the }{\i\insrsid410095\charrsid12603096 Perez}{\insrsid410095\charrsid12603096 
 test to determine if a separation of powers violation has occurred, we find that the legislative prescription of executive powers and duties to the Lieutenant Governor does not prevent the Governor from accomplishing his constitutional functions.}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See Perez}{\insrsid410095\charrsid12603096 , 1999 Guam 2 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  17; }{\i\insrsid410095\charrsid12603096 Cf. Olson}{\insrsid410095\charrsid12603096 , 286 N.W.2d at 273-74.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 This conclusion is further underscored by our holdings }{
\i\insrsid410095\charrsid12603096 supra}{\insrsid410095\charrsid12603096  that the Governor retains the power of general supervision and control over the Clearinghou
se and that Public Law 26-169 does not implicate the appointment clauses found at sections 1422 and 1422c(a) of the Organic Act.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Having answered in the negative the first part of the two-part test, our separation of powers analysis ends here.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See Perez}{\insrsid410095\charrsid12603096 , 1999 Guam 2 at }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  17.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Accordingly, we hold that Public Law 26-169, in designating the Lieutenant Governor as Director of the Guam State Clearinghouse, does not violate the separation of powers doctrine.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See id.}{
\insrsid410095\charrsid12603096  at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  17; 48 U.S.C. }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422; }{\i\insrsid410095\charrsid12603096 Olson}{\insrsid410095\charrsid12603096 , 286 N.W.2d at 273-74.}{\insrsid410095 
\par }{\insrsid12603096\charrsid12603096 
\par }\pard \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 3.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 Severability}{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [54]}{\insrsid410095\charrsid12603096 \tab The final issue we consider with respect to Public Law 26-169 is whether principles of severability may be applied to preserve its remaining provisions which are not invalid.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 A severability provision is found in section 10 of Public Law 26-169, and states:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\b\insrsid12603096 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 Severability}{\insrsid410095\charrsid12603096 . }{\i\insrsid410095\charrsid12603096 If}{\insrsid410095\charrsid12603096 
 any provision of this Law or its application to any person or circumstance is found to be invalid or contrary to law, such invalidity shall }{\i\insrsid410095\charrsid12603096 not}{\insrsid410095\charrsid12603096 
 affect other provisions or applications of this Law which can be given effect without the invalid provisions or application, and to this end the provisions of this Law are severable.}{\insrsid410095 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12603096 {\insrsid12603096\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\insrsid410095\charrsid12603096 P.L. 26-169: 10.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 While the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 presence of a severability clause creates a presumption that [the Legislature] did not intend for the validity of a statute to depend on the survival of its constitu
tionally offensive provisions[,] . . . . that presumption is not conclusive.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 
Western States Med. Ctr. v. Shalala}{\insrsid410095\charrsid12603096 , 238 F.3d 1090, 1097 (9th Cir. 2001) (citation omitted).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Under the traditional test for severabi
lity, fashioned more than seventy years ago:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
Unless it is evident that the legislature would not have enacted those provisions which are within its power, independently of that which is not, the invalid part may be dropped if what is left is fully operative as a law.}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 Champlin Refining Co. v. Corp. Comm}{
\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 n of Okla.}{\insrsid410095\charrsid12603096 , 286 U.S. 210, 234, 52 S. Ct. 559, 565 (1932).}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Thus, our inquiry of whether an invalid provision may be severed from a statute involves a two-part test.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
(1) Whether, if the inorganic provisions of Public Law 26-169 are dropped, the remaining provisions will be fully operative as law; and (2) if so, whether the legi
slative intent in enacting Public Law 26-169 can be accomplished through the remaining provisions.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [55]}{\insrsid410095\charrsid12603096 \tab Applying part one of the test, we find that if the invalid terms }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 exclusive}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  and }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 final}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  are excised from sections 2 and 3 of Public Law 26-169, the remaining provisions are fully operative as law.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  P.L. 26-169:2, 3.

\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [56]}{\insrsid410095\charrsid12603096 \tab Next, in applying part two of the test, we must examine the legislative intent in enacting Public Law 26-169, which is found at section 1.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 P.L. 26-169: 1.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Legislature recognized the }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 need to establish a single and centralized clearinghouse within the government of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The clearinghouse would thus be }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 responsible for overseeing all Federal aid programs, grants, loans, direct Federal development, and other Federal funding sources for Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\i\insrsid12603096  }{\insrsid410095\charrsid12603096 
In light of the dire financial circumstances faced by the government, the Legislature deemed it important to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 identify, track and oversee}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 the process of obtaining and receiving federal funding programs for Guam and maintain rapport with the various federal agencies.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Finally, the Legislature declared, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
it is important that responsibility for these matters is vested at the highest levels of the Executive Branch of government.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [57]}{\insrsid410095\charrsid12603096 \tab We find that the legislative intent as expressed in section 1 can be accomplished despite our invalidation of the inorganic provisions found in sections 2 and 3 of the statute.
}{\insrsid12603096  }{\insrsid410095\charrsid12603096 First, the Clearinghouse remains within the highest levels of the Executive Branch, the Office of the Lieutenant Governor.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{
\insrsid410095\charrsid12603096  at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  2.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Second, also ensuring that the highest levels of the Executive Branch be responsible for these matters, under section
 3 the Director of the Clearinghouse retains the approval authority of all federal funding applications and under section 2, the Director is identified as the Lieutenant Governor.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{
\insrsid410095\charrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  2, 3.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Third, under section 2, the Clearinghouse retains the purview }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 over all Federal aid programs, grants, loans, contracts, contributions, appropriations, advances, direct Federal development and other Federal funding sources for Guam[,]}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  thus accomplishing the centralization goal.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Finally, the remainder of the duties and responsibilities of the Clearinghouse, found in section 3 of Public Law 26-169, are unchanged by the removal of the invalid terms from sections 2 and 3.}{
\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\insrsid410095  }{
\fs20\insrsid410095  The duties and responsibilities of the Clearinghouse are found in Section 3 of Public Law 26-169, which states:
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid410095 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid410095 In addition to the duties and responsibilities of the Guam State Clearinghouse as may be prescribed by }{\i\fs20\insrsid410095 I Segundu Na Maga}{\i\fs20\insrsid410095 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\i\fs20\insrsid410095 lahi}{\fs20\insrsid410095 
 [the Lieutenant Governor], or by law, the Guam State Clearinghouse shall also have the following duties and responsibilities:
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid410095 
\par }\pard \qj \fi720\li1440\ri1440\nowidctlpar\faauto\rin1440\lin1440\itap0 {\fs20\insrsid410095 (a) Administer the initiation, coordination and review process of all activities within Guam involving Federal financial assistance.
\par (b) Ensure that grant proposals for Federal assistance are in accordance with plans, policies, programs, objectives and procedures of the government of Guam.
\par (c) Ensure that proposed projects for which Federal financial assistance is sought are fiscally and environmentally sound and are in compliance with all applicable Federal laws.
\par (d) Ensure that the government of Guam comp
lies with all applicable Federal laws relating to Federal financial assistance and that there exists sound tracking, management, and financial accountability for all Federal programs awarded to the government of Guam.
\par (e) Perform cost analysis on all Feder
al aid programs, grants, loans, contracts, contributions, advances, direct Federal development, or other Federal funding for the financial impact on the government of Guam's General Fund or special funds used to fund the local matching requirement as pres
c
ribed by Federal law; and the financial impact on the government of Guam for the continuation of the Federal program should the Federal funding expire and require the government of Guam to financially assume the program's operation one hundred percent (10
0%).
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid410095 
\par P.L. 26-169: 3.
\par }\pard \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid410095  }}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Thus, examination of the surviving sections of Public Law 26-169 indicates that the legislative intent in enacting Public Law 26-169, that is, to establish a single and centralized clearinghouse at the highest levels of the execut
ive branch which would be responsible for overseeing all federal funding programs, can still be accomplished.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
As a result, we hold that the inorganic provisions may be severed and thus, the remaining provisions of Public Law 26-169 are upheld.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  }{
\i\insrsid410095\charrsid12603096 Champlin Refining Co., }{\insrsid410095\charrsid12603096 286 U.S. 210 at 234, 52 S. Ct. at 559.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 C.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 Executive Order 2004-07}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [58]}{\insrsid410095\charrsid12603096 \tab Governor Camacho argues that he has legitimately exercised his Organic Act reorganization powers, pursuant to 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422c(c), and he merely carried out such actions through Executive Order 2004-07, and therefore, such action is valid.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Brief, pp. 27-30.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Lieutenant Governor Moylan, however, contends that Executive Order 2004-07 is in conflict with Public Law 26-169 and is therefore invalid.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Lieutenant Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Brief, pp. 43-45.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [59]}{\insrsid410095\charrsid12603096 \tab The Organic Act expressly provides the Governor with authority to issue executive orders, stating that:}{\insrsid12603096  }{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 [The Governor] shall have the power to issue executive orders and regulations not in conflict with any applicable law.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Although the Governor asserts that his issuance of Executive Order 2004-07 transferring}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
the functions of the Clearinghouse to BBMR, the Bureau of Statistics and Plans, and other executive branch agencies was a proper exerc
ise of his Organic Act power to reorganize, Request for Declaratory Judgment, at 8, his purported reorganization was nonetheless undertaken through issuance of an executive order.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Therefore, the threshold issue before us is whether Executive Order 2004-07 was validly issued pursuant to the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s section 1422 authority to issue executive orders which are }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
not in conflict with any applicable law.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [60]}{\insrsid410095\charrsid12603096 \tab Courts have generally recognized three kinds of executive orders.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See Shapp v. Butera}{\insrsid410095\charrsid12603096 
, 348 A.2d 910 (Pa. Commw. Ct. 1975); }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  Benjamin S. Longlet, Comment, }{\i\insrsid410095\charrsid12603096 Gubernatorial Executive Orders in Wisconsin:}{\i\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 The Case for Judicial Enforcement}{\insrsid410095\charrsid12603096 , }{\scaps\insrsid410095\charrsid12603096 Wis. L.Rev. }{\insrsid410095\charrsid12603096 1323, 1325 (2000).}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The first type consists of ceremonial and political executive orders, usually issued as proclamations declaring a special day or commemorating a special event.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Shapp}{
\insrsid410095\charrsid12603096 , 348 A.2d at 913.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The second type are }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 directives}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 that communicate to subordinate executive branch employees a request or suggestion of action }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
for execution of the [executive branch] duties . . . .}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The third type of order }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
serve[s] to implement or supplement the Constitution or statutes}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  and have the force of law.}{
\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Executive Order 2004-07 is neither ceremonial nor a mere communication to subordinates; rather, it is the third type.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [61]}{\insrsid410095\charrsid12603096 \tab The issue in this case is whether Executive Order 2004-07 is valid.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Such an executive order }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
is entitled to the same presumption of constitutionality that a statute enjoys and, thus, should be construed as constitutional unless its unconstitutionality is clearly apparent.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 County Road Ass}{\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\i\insrsid410095\charrsid12603096 n v. Governor}{\insrsid410095\charrsid12603096 , 677 N.W.2d 340, 348 (Mich. Ct. App. 2004) (citing }{\i\insrsid410095\charrsid12603096 Straus v. Governor,}{\insrsid410095\charrsid12603096  592 N.W.2d 53 (Mich. 1999).}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Therefore, unless we determine that the unconstitutionality of Executive Order 2004-07 is clearly apparent, we must find it to be valid.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See id.}{
\insrsid410095\charrsid12603096  Since the Governor is only authorized to issue executive orders }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
not in conflict with any applicable law}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 1422, if we find that Executive Order 2004-07 is in conflict with an applicable law, its unconstitutionality would be clearly apparent and Executive Order 2004-07 would be invalid.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [62]}{\insrsid410095\charrsid12603096 \tab The first step in evaluating whether Executive Order 2004-07 conflicts with any applicable law is to determine what law is, in fact, applicable.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 As illustrated herein, both Executive Order 2004-07 and Public Law 26-169 address the functions of the Clearinghouse.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The applicability of Public Law 2
6-169 is clear upon comparing the functions which the Governor transferred through Executive Order 2004-07 to the duties and responsibilities of the Clearinghouse identified by section 3 of Public Law 26-169 which added subsections 2101.1 (a) through (e) 
to Title 5 of the Guam Code Annotated.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Each subsection is compared below.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [63]}{\insrsid410095\charrsid12603096 \tab Subsection 2101.1(a) states that the Clearinghouse shall }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid410095\charrsid12603096 [a]dminister the initiation, coordination, and review process of all activities within Guam involving Federal financial assistance.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L. 26-169: 3.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Paragraph I.B.1. of Executive Order 2004-07 states that the Bureau of Statistics and Plans has the duty to }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 [i]nitiate, coordinate, and review process of all activities within Guam involving Federal financial assistance.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Exec. Order No. 2004-07, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  I.B.1.

\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [64]}{\insrsid410095\charrsid12603096 \tab Subsection 2101.1(b) states that the Clearinghouse shall }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid410095\charrsid12603096 [e]nsure that grant proposals for Federal assistance are in accordance with plans, policies, programs, objectives and procedures of the government of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L. 26-169: 3.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Paragraph I.B.2. of Executive Order 2004-07 states, in identical language, that the Bureau of Plans and Statistics will be responsible for these duties.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Exec. Order No. 2004-07, }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  I.B.2.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [65]}{\insrsid410095\charrsid12603096 \tab Subsection 2101.1(c) states that the Clearinghouse shall }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid410095\charrsid12603096 [e]nsure that proposed projects for which Federal financial assistance is sought are fiscally and environmentally sound and are in compliance with all applicable Federal laws.}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Again, identical language is found in paragraph I.A.1. of Executive Order 2004-07, which transferred such duties to BBMR.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Exec. Order No. 2004-07, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  I.A.1.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [66]}{\insrsid410095\charrsid12603096 \tab Subsection 2101.1(d) states that the Clearinghouse shall }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid410095\charrsid12603096 [e]nsure that the government of Guam complies with all applicable Federal laws relating to Federal financial assistance and that there e
xists sound tracking, management, and financial accountability for all Federal programs awarded to the government of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L. 26-169: 3.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Paragraph I.C.1. of Executive Order No. 2004-07 reflects the same language, and transferred these duties to }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 Executive Branch agencies and instrumentalities.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Exec. Order No. 2004-07, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  I.C.1.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [67]}{\insrsid410095\charrsid12603096 \tab Finally, the Clearinghouse duty outlined in subsection 2101.1(e) is transferred to BBMR, again using identical language, in paragraph I.A.2. of the executive order.}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 Public Law 26-169:3; Exec. Order No. 2004-07, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 I.A.2.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [68]}{\insrsid410095\charrsid12603096 \tab Based on the striking similarities, we find that the law applicable to Executive Order 2004-07 is Public Law 26-169.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [69]}{\insrsid410095\charrsid12603096 \tab The second step is to determine whether Executive Order 2004-07 conflicts with the applicable law, that being Public Law 26-169.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 We find that the conflict between the two is apparent.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s transfer of functions to BBMR, the Bureau of Statistics and Plans, and various Executive Branch bureaus, agenci
es and instrumentalities through Executive Order 2004-07, directly conflicts with the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s specific prescription of the identical duties to the Clearinghouse within the Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Office.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 The Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s transfer of functions is also in direct contravention of the Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s stated finding of the }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
need to establish a single and centralized clearinghouse within the government of Guam responsible for overseeing all Federal aid programs, grants . . . }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 P.L. 26-169: 1.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In addition, transferring the duties to these agencies defies the Legislature}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s desire }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 that responsibility . . . [be] vested at the highest levels of the Executive Branch of government.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [70]}{\insrsid410095\charrsid12603096 \tab We conclude that because Executive Order 2004-07 conflicts with an applicable law, it is not a valid exercise of the Governor}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Organic Act power to issue executive orders under 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Therefore, because its }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 unconstitutionality is clearly apparent[,]}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 County Road}{\insrsid410095\charrsid12603096 , 677 N.W.2d at 348, Executive Order 2004-07 must be struck down as inorganic.}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote 
\pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\insrsid410095   }{\fs20\insrsid410095 
  We note that the parties have not argued the severability of paragraph D of Executive Order 2004-07, which states that }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 
[f]ederal programs affecting the executive branch of the government of Guam shall require the final approval of the Governor of Guam.}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{
\fs20\insrsid410095  Exec. Order No. 2004-07. When faced with the issue of unconstitutional language in an executive order, some courts have applied the test for severance used for statutes that are partially unconstitutional.  }{\i\fs20\insrsid410095 
See Reyes v. U.S. Dep}{\i\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\i\fs20\insrsid410095 t of Immigration & Naturalization}{\fs20\insrsid410095 , 910 F.2d 611(9th Cir. 1990); }{
\i\fs20\insrsid410095 Commonwealth v. Anglo}{\fs20\insrsid410095 , 1999 WL 33595876 (N. Mar. I. 1999).  Similarly, we articulate the traditional test for severability }{\i\fs20\insrsid410095 supra}{\fs20\insrsid410095 
 regarding the inorganic components of Public Law 26-169.  For purposes of this case, we shall assume, without deciding, that severability principles may be similarly applied to an executive order. }{\i\fs20\insrsid410095 
 See Minnesota v. Mille Lacs Band of Chippewa Indians}{\fs20\insrsid410095 , 526 U.S. 172, 191, 119 S. Ct. 1187, 1198 (Minn. 1999) (}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{
\fs20\insrsid410095 [A]ssum[ing], }{\i\fs20\insrsid410095 arguendo}{\fs20\insrsid410095 , that the severability standard for statutes also applies to Executive Orders.}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols"
 \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 ).  
\par Thus, we contemplate a similar two-part test as applied to Public Law 26-169 }{\i\fs20\insrsid410095 supra}{\fs20\insrsid410095  and ask:  1) whether the surviving provision will be fully operative standing alone, and 2) if so, whether the Governor}{
\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 s intent in issuing Executive Order 2004-07 would still be accomplished.  }{\i\fs20\insrsid410095 
Champlin Refining Co. v. Corp. Comm}{\i\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\i\fs20\insrsid410095 n of Okla.}{\fs20\insrsid410095 
, 286 U.S. 210, 234, 52 S. Ct. 559, 565 (1932).  Taking Executive Order 2004-07 as a whole, it seems clear that the Governor intended to achieve the specific purpose of reorganization, and not final approval.  First, Executive Order 2004-07 is entitled:  
}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 Relative to Reorganizing the Processing of Federal Programs.}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095   Second, the Governor specifically references and relies on his Organic Act authority to reorganize the executive branch under 48 U.S.C. }{\fs20\insrsid410095 {\field{\*\fldinst 
SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095  1422c(c), and states as follows:
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid410095 NOW, THEREFORE, I, FELIX P. CAMACHO, }{\i\fs20\insrsid410095 I Maga}{\i\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 10}{\fldrslt
\f36\fs20}}}{\i\fs20\insrsid410095 l\'e5hen Gu\'e5han}{\fs20\insrsid410095 , 
Governor of Guam, by virtue of the authority vested in me by the Organic Act of Guam, as amended, and the laws of Guam, do hereby invoke my authority, as Governor, to reorganize the Executive Branch of the Government of Guam pursuant to 48 U.S.C. }{
\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095  1422c(c) . . . .
\par }\pard \qj \li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid410095 
Exec. Order No. 2004-07.  We do believe paragraph D would be valid standing alone.  However, we do not believe that paragraph D, standing alone, would have accomplished the Governor}{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 s intent to reorganize through Executive Order 2004-07, and therefore, paragraph D does not survive severability.}}}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [71]}{\insrsid410095\charrsid12603096 \tab Accordingly, because Executive Order 2004-07 fails the threshold determination of validity, it is unnecessary to address the issue of the Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s attempt to exercise his Organic Act reorganization authority under 48 U.S.C. }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422c(c).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 D.}{\b\insrsid12603096  }{\b\insrsid410095\charrsid12603096 Termination of Unclassified Executive Branch Employees}{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [72]}{\insrsid410095\charrsid12603096 \tab Lastly, Governor Camacho requests clarification of his }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 power to terminate non-classified employees of the Executive Branch of the Government of Guam, such as Bertha Duenas and Raymond Blas.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Request for Declaratory Judgment, p. 13 }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  36(d).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
He maintains that the terminations of Duenas and Blas, both unclassified employees, were properly executed pursuant to section 1422 of the Organic Act, which sets forth his appointment and removal powers.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 The Lieutenant Governor argues that the terminations were invalid.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s Brief, pp. 45-49.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [73]}{\insrsid410095\charrsid12603096 \tab Section 1422 of the Organic Act provides that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 [the Governor] shall appoint, and may remove, all officers and employees of the executive branch and of the government of Guam, except as otherwise provided in this or any other Act of Congress, or under the laws of Guam.}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Thus, the plain language of the Organic Act establishes two limitations on the Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s appointment and removal power.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [74]}{\insrsid410095\charrsid12603096 \tab First, Congress may limit the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s power by }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provid[ing,]}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  through the Organic Act or other congressional acts, for appointment or removal of Executive Branch employees.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
For example, section 1422c(a) of the Organic Act }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provided}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  for the appointment of officers and employees of the executive branch by specifically charging the Guam Legislature with }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 establish[ing] a merit system . . . [under which] appointments and promotions shall be made . . . .}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422c(a).}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  }{\i\insrsid410095\charrsid12603096 Univ. of Guam v. Guam Civil Serv. Comm}{
\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 n}{\insrsid410095\charrsid12603096 , 2004 Guam 4, }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  8 (recognizing the Guam Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s compliance with section 1422c(a) through the enactment of Title 4 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  4101 }{\i\insrsid410095\charrsid12603096 et seq.}{\insrsid410095\charrsid12603096 );}{\i\insrsid410095\charrsid12603096  Brown v. Civil Serv. Comm}{\i\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 n}{\insrsid410095\charrsid12603096 , 818 F.2d 706 (9th Cir. 1987) (holding that Congress}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s mandate to the Guam Legislature to establish a merit system for appointments and promotions was not limited by the Governor}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s authority to establish and maintain the educational system). 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [75]}{\insrsid410095\charrsid12603096 \tab Second, the Legislature may limit the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s power by }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provid[ing] . . . under the laws of Guam.}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Again, as evidenced in }{\i\insrsid410095\charrsid12603096 Brown}{\insrsid410095\charrsid12603096  and in }{
\i\insrsid410095\charrsid12603096 University of Guam}{\insrsid410095\charrsid12603096 , the}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Legislature }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provided}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 for a limitation on the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s appointment and removal authority by complying with the federal mand
ate and promulgating in Chapter 4 of Title 4 Guam Code Annotated, Personnel Policy and the Civil Service Commission.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid410095\charrsid12603096  Title 4 GCA }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4101 }{\i\insrsid410095\charrsid12603096 et seq.}{\insrsid410095\charrsid12603096  (2000); }{
\i\insrsid410095\charrsid12603096 Brown}{\insrsid410095\charrsid12603096 , 818 F.2d 706; }{\i\insrsid410095\charrsid12603096 Univ. of Guam}{\insrsid410095\charrsid12603096 , 2004 Guam 4, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  8.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Thus, the Legislature }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 established a merit system of employment applicable to the entire government of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Univ. of Guam}{\insrsid410095\charrsid12603096 , 2004 Guam 4 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  8.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Under the merit system, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 [n]o person in the }{\i\insrsid410095\charrsid12603096 classified}{\insrsid410095\charrsid12603096 
 service shall be removed except for such cause as will promote the efficiency of the service and for the reasons given in writing.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  Title 4 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4201 (emphasis added).}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 In addition, }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\i\insrsid410095\charrsid12603096 [c]lassified }{\insrsid410095\charrsid12603096 
employees are generally entitled to appeal their personnel actions to the [Civil Service] Commission.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  }
{\i\insrsid410095\charrsid12603096 Univ. of Guam}{\insrsid410095\charrsid12603096 , 2004 Guam 4 at }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 8 (emphasis added); }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  4 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}{\field{\*\fldinst SYMBOL
 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4105, 4103(b). 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [76]}{\insrsid410095\charrsid12603096 \tab In }{\i\insrsid410095\charrsid12603096 Sablan v. Gutierrez}{\insrsid410095\charrsid12603096 , we acknowledged that the Legislature had }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provided}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}
{\insrsid410095\charrsid12603096  for the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s power of appointment by enacting Title 3 GCA }{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  2101(a), which }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 place[d] a limitation on [the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s] power of appointment by restricting his group of candidates [to the Guam Election Commission] to persons recommended by Guam}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s recognized political parties.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{
\i\insrsid410095\charrsid12603096 Sablan v. Gutierrez}{\insrsid410095\charrsid12603096 , 2002 Guam 13}{\i\insrsid410095\charrsid12603096 , }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096  13.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 We expressly determined that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 the phrase }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 62 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 except as otherwise provided . . . under the law[] . . .}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  under section 1422 of the Organic Act is an }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
unmistakable recognition of the authority of the lawmaking department to provide for the appointment of all officers whose appointment is not definitely regulated by the Constitution itself.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 Id.}{\insrsid410095\charrsid12603096  (quoting }{\i\insrsid410095\charrsid12603096 Driscoll v. Sakin}{\insrsid410095\charrsid12603096 
, 1 A.2d 881, 882 (N.J. 1938)).
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [77]}{\insrsid410095\charrsid12603096 \tab In the instant case, the parties do not dispute, and the record supports, that both Duenas and Blas were unclassified appointments.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Addendum, tab 1 (DOA Notification of Personnel Action, Ex. B)(identifying both Duenas and Blas as unclassified employees); }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  Title 4 GCA }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4102 (a)(15) (}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 The unclassified service shall include the positions of . . . employees of the office of the Governor and Lieutenant Governor . . . authorized in the applicable appropriation law}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 ).}{\insrsid12603096  }{\insrsid410095\charrsid12603096 As unclassified employees, it is c
lear that neither Duenas nor Blas are afforded the protection of the merit system.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See Univ. of Guam}{\insrsid410095\charrsid12603096 , 2004 Guam 4 at }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 38 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  8; }{\i\insrsid410095\charrsid12603096 see also}{\insrsid410095\charrsid12603096  4 GCA}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  4101 }{\i\insrsid410095\charrsid12603096 et seq}{\insrsid410095\charrsid12603096 . 
\par 
\par }{\b\insrsid410095\charrsid12603096 [78]}{\insrsid410095\charrsid12603096 \tab Notwithstanding the unclassified status of Duenas and Blas, Lieutenant Governor Moylan appears to argue that in enacting Title 5 GCA }{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  2103,}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\fs20\insrsid410095   Title 5 GCA }{\fs20\insrsid410095 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 10}{\fldrslt\f36\fs20}}}{\fs20\insrsid410095 
 2103 (2003) states, in its entirety:
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid410095 
\par }\pard \qj \li1440\ri1440\sa240\nowidctlpar\faauto\rin1440\lin1440\itap0 {\fs20\insrsid410095 
There is hereby authorized an annual budget for the Office of the Lieutenant Governor beginning with Fiscal Year 1977. This is to ensure the effective discharge of the responsibilities and duties of the Offic
e of the Lieutenant Governor as an office separate from that of the Governor pursuant to Section 6 of the Organic Act of Guam and of this Chapter. Notwithstanding any provision of the law, rule, or regulation or Executive Order to the contrary, the funds 
allocated shall be administered solely by the Lieutenant Governor of Guam and expended upon his authorization for the purposes of the allocation.}}}{\insrsid410095\charrsid12603096 
 which makes a specific and separate budget appropriation for the Office of the Lieutenant Governor, the Legislature }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 otherwise provided}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 for the removal of both Duenas and Blas and thus, effectively excluded these employees from the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Organic Act removal authority.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}
}{\insrsid410095\charrsid12603096 s Brief, p. 46.
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [79]}{\insrsid410095\charrsid12603096 \tab We do not agree. Nothing in the language of 5 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096  2103 indicates that the authority to remove Executive Branch employees working in the Office of the Lieutenant Governor has been }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provided}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 for by the Legislature.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 Moreover, while we recognize that the Organic Act and local laws may place limitations on the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s appointment and removal authority over employees of the Executive Branch, a separate appropriation by the Legislature for the Offic
e of the Lieutenant Governor relates to the budget of that office, and thus, does not in itself affect the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid410095\charrsid12603096 s Organic Act authority of appointment and removal.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 In fact, in creating the Lieutenant Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f 
"WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s separate budget, the Legislature merely stated that }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt
\f36\fs24}}}{\insrsid410095\charrsid12603096 the funds allocated shall be administered solely by the Lieutenant Governor of Guam.}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{
\insrsid12603096  }{\insrsid410095\charrsid12603096 5 GCA }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  2103. 
\par }{\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [80]}{\insrsid410095\charrsid12603096 \tab The Legislature}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s recognition and acknowledgment that the Office of the Lieutenant Governor may have distinct budgetary needs, and its appropriation for that Office, is not tantamount to the Legislature providing an exception to the Governor}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s appointment and removal authority.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Nothing in the separate budget addresses or affects the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s Organic Act authority regarding appointment and removal; thus, we hold that the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s authority to appoint or remove has not been }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 otherwise provided}{\insrsid410095\charrsid12603096 
{\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  for by the Legislature.}{\cs15\super\insrsid410095\charrsid12603096 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\super\insrsid410095 \chftn }{\fs22\insrsid410095   }{\fs20\insrsid410095 
In so holding we do not, at this time, address the extent to which the Legislature may otherwise provide for the appointment and removal of executive branch employees.}}}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Therefore, we conclude that in terminating the unclassified employments of Duenas and Blas, Governor Camacho properly executed his Organic Act removal authority.}{\insrsid12603096  }{\i\insrsid410095\charrsid12603096 See}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 48 U.S.C. }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 39 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  1422.
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid410095\charrsid12603096 IV.}{\insrsid410095\charrsid12603096 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12603096 {\b\insrsid12603096 
\par }{\b\insrsid410095\charrsid12603096 [81]}{\insrsid410095\charrsid12603096 \tab Accordingly, we hold that the provisions of Public Law 26-169 which grant }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols"
 \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 exclusive}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
 purview to the Guam State Clearinghouse and }{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 65 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 final}{\insrsid410095\charrsid12603096 {\field{\*\fldinst 
SYMBOL 64 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096  authority to the Director of the Guam State Clearinghouse are in derogation of the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL
 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s powers of general supervision and control as set forth in section 1422 of the Organic Act, and are therefore inorganic and invalid.}{\insrsid12603096  }{
\insrsid410095\charrsid12603096 We also hold that the designation of the Lieutenant Governor as the Director of the Guam State Clearinghouse does not constitute an appointment, but rather, is a valid exercise of the Legislature}{
\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 
s power to prescribe executive powers and duties to the Lieutenant Governor as set forth in sections 1422 and 1423a of the Organic Act.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 We further hold that the inorganic 
provisions of Public Law 26-169 may be severed and thus, the remaining provisions of Public Law 26-169 are upheld.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Further, we hold that Executive Order 2004-07 is void as an invalid exercise of the Governor}{\insrsid410095\charrsid12603096 {\field{\*\fldinst SYMBOL 61 \\f "WP TypographicSymbols" \\s 12}{\fldrslt\f36\fs24}}}{\insrsid410095\charrsid12603096 s a
uthority to issue executive orders pursuant to section 1422 of the Organic Act.}{\insrsid12603096  }{\insrsid410095\charrsid12603096 
Finally, we hold that the Governor properly exercised his Organic Act removal authority in terminating the unclassified employments of Bertha Duenas and Raymond Blas.
\par }}