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\b\fs28\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\insrsid5449321\charrsid9783106 IN THE SUPREME COURT OF GUAM}{\fs24\insrsid9783106\charrsid9783106 
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\par }{\fs24\insrsid5449321\charrsid9783106 Petitioner-Appellee,}{\b\fs24\insrsid5449321\charrsid9783106 
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\par }{\b\fs24\insrsid5449321\charrsid9783106 MATTHEW J. RECTOR,
\par }{\fs24\insrsid5449321\charrsid9783106 Real Party in Interest-Appellee,}{\b\fs24\insrsid5449321\charrsid9783106 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 LOURDES M. PEREZ,
\par in her capacity as
\par Director of the Department of Administration,
\par }{\fs24\insrsid5449321\charrsid9783106 Respondent-Appellant.}{\fs24\insrsid9783106\charrsid9783106 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 Supreme Court Case No. CVA04-031
\par Superior Court Case}{\b\fs24\insrsid5449321\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 No. SP0170-03}{\b\fs24\insrsid9783106\charrsid9783106 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 Appeal from the Superior Court of Guam
\par Argued and submitted on June 30, 2005
\par Hag\'e5t\'f1a, Guam}{\fs24\insrsid9783106\charrsid9783106 
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\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\ul\insrsid5449321\charrsid9783106 Appearing for the Respondent-Appellant}{\fs24\insrsid5449321\charrsid9783106 : \tab \tab }{\fs24\ul\insrsid5449321\charrsid9783106 
Appearing for the Petitioner-Appellee}{\fs24\insrsid5449321\charrsid9783106 : 
\par James T. Mitchell, }{\i\fs24\insrsid5449321\charrsid9783106 Esq.\tab \tab \tab \tab }{\fs24\insrsid5449321\charrsid9783106 Robert P. Kutz, }{\i\fs24\insrsid5449321\charrsid9783106 Esq.
\par }{\fs24\insrsid5449321\charrsid9783106 Assistant Attorney General\tab \tab \tab \tab Law Office of Robert P. Kutz
\par Office of the Attorney General\tab \tab \tab P.O. Box 7310
\par 287 W O\rquote Brien Dr}{\fs24\insrsid1325303\charrsid9783106 .\tab }{\fs24\insrsid5449321\charrsid9783106 \tab \tab \tab \tab Agat, Guam 96928
\par Hag\'e5t\'f1a, Guam 96910
\par }{\fs24\insrsid9783106 
\par }{\fs24\insrsid5449321\charrsid9783106 BEFORE: F. PHILIP CARBULLIDO, Chief Justice; FRANCES M. TYDINGCO-GATEWOOD, Associate Justice; and ROBERT J. TORRES, JR., Associate Justice.
\par }{\fs24\insrsid5377860\charrsid9783106 
\par }{\b\fs24\insrsid5449321\charrsid9783106 CARBULLIDO, C.J.:
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\par }{\b\fs24\insrsid1325303\charrsid9783106 [1]\tab }{\fs24\insrsid5449321\charrsid9783106 
This is an appeal from a writ of mandate issued by the Superior Court of Guam in favor of Petitioner-Appellee Guam Federation of Teachers (GFT), compelling Respondent-Appellant Lourdes M. Perez, the Director of th
e Department of Administration, to hold a hearing on an unfair labor practice charge filed by Real Party in Interest-Appellee Matthew J. Rector.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
In granting the petition, the lower court held that the provisions of the Administrative Adjudication Law applied to the Department of Administration (DOA) and required it to conduct a hearing on the unfair labor practice charge filed by Rector.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 DOA filed a motion to reconsider, challenging the Superior Court\rquote s subject matter jurisdiction.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 The motion was denied, and a writ was issued ordering Perez, the Director of DOA, to conduct a hearing on the unfair labor practice claim.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The Director appealed.}{\fs24\insrsid5449321 
\par }{\fs24\insrsid9783106\charrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\qj \li0\ri0\widctlpar\faauto\pnrdate647797773\pnrnot1\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid1325303\charrsid9783106 [2]\tab }{\fs24\insrsid5449321\charrsid9783106 
We hold that the provisions of the Administrative Adjudication Law, the Public-Employee Management Relations 
Act, and the related administrative regulations, do not require that the Director of DOA conduct a hearing on the unfair labor practice claim filed by Rector.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Specifically, upon review of the provisions therein, we conclude that there was no legal duty to hold a hearing on the part of the Director, and consequently, }{\fs24\insrsid2255141\charrsid9783106 the issuance of the writ of mandate was not appropriate}{
\fs24\insrsid5449321\charrsid9783106 .}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Accordingly, we reverse.
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 I.}{\fs24\insrsid5449321\charrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid9783106 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [3]\tab }{\fs24\insrsid5449321\charrsid9783106 
John F. Kennedy (JFK) High School teacher and Guam Federation of Teachers union steward Matthew J. Rector attended a faculty and administration meeting, where he presented the concerns of several teachers regarding the performance of an assistant principa
l as a collective grievance.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 At the meeting, Rector requested that the principal consider the presentation of those concerns as \'93Step I\'94
 of the administrative grievance process against the assistant principal.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Appellant\rquote s Excerpts of Record (hereafter ref
erred to as ER), p. 10 (Pet. for Alt. Writ. of Mand.; Memo. of Points and Auth., Ex. B (Letter from Kutz to Perez, March 13, 2003)).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The principal agreed.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Rector later received an adverse action notice resulting in his demotion from Teacher Class III sta
tus to Teacher Class I for 10 days for insubordination at the faculty and administration meeting.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Rector appealed this adverse action to the Civil Service Commission.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 In addition to challenging the demotion as a civil service matter, Record also filed Un
fair Labor Practice Charge No. DOE-2002 with DOA, claiming he was being disciplined for his actions as a union steward.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
This appeal arises out of the unfair labor practice charge and does not address the civil service matter.}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [4]\tab }{\fs24\insrsid5449321\charrsid9783106 In October 2002, Clifford
 Guzman, sitting as DOA Director at such time, informed the Governor that DOA had begun its investigation into the charge of an unfair labor practice (ULP).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [5]\tab }{\fs24\insrsid5449321\charrsid9783106 Guam Federation of Teachers President Elizabeth Taimanao, on behalf of the GFT, wrote Guzman on November 14, 2002, disputing the Department of Education\rquote 
s characterization of the ULP charge as an appeal of the adverse action against Rector.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
She also asserted that the ULP charge was a union action under the Public Employee-Management Relations Act (PEMRA), separate from Rector\rquote s appeal with the Civil Service Commission.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 

\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [6]\tab }{\fs24\insrsid5449321\charrsid9783106 
DOE and Rector stipulated to continue the Civil Service Commission (CSC) appeal to proceed with the ULP charge through DOA to determine whether the matter was governed by the 
ULP procedures under PEMRA, or whether it was a disciplinary issue to be addressed by CSC.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [7]\tab }{\fs24\insrsid5449321\charrsid9783106 GFT counsel Robert P. Kutz later wrote to the successor DOA Director, Lourdes M. Perez (the Director) and stated that Rector was \'93hopeful that this action may 
be promptly processed.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 ER, pp. 11 (Pet. for Alt. Writ of Mand.; Memo. of Points and Auth., Exs. B (Letter from Kutz to Perez, March 13, 2003) and C).}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 There wa}{\fs24\insrsid1325303\charrsid9783106 s no response to this letter. }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [8]\tab }{\fs24\insrsid5449321\charrsid9783106 GFT then filed its Petition for Alternative Writ of Mandate, asking the}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Superior Court of Guam to compel the Director, }{\i\fs24\insrsid5449321\charrsid9783106 inter alia,}{\fs24\insrsid5449321\charrsid9783106  to hold a hearing on the ULP charge.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The Director filed her opposition on several grounds, including that the Superior Court lacked jurisdiction on sovereign immunity grounds. }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [9]\tab }{\fs24\insrsid5449321\charrsid9783106 Th
e lower court granted the writ of mandate, finding that the provisions of the Administrative Adjudication Law (AAL) applied to the Director and required her to conduct a hearing to resolve the ULP charge.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 In its decision, the lower court quoted Title 5 GCA \'a7 9108 of the AAL and further referenced Title 2 Guam Administrative Rules and Regulations (GAR) \'a7
 5210, an administrative regulation which was promulgated through PEMRA.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [10]\tab }{\fs24\insrsid5449321\charrsid9783106 Subsequently, the Director, without holding an adjudicatory hearing on the U
LP claim, transmitted a memorandum to Governor Felix P. Camacho informing him of her resolution of the ULP charge.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
She concluded that the management of DOE had not committed an unfair labor practice by demoting Rector, citing Rector\rquote s lack of authority over the criticized assistant principal, and Rector\rquote s failure to present the teachers\rquote 
 concerns pursuant to grievance procedures, as justifications for the adverse action.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The investigation further determined that the demotion was not illegal under the PEMR
A provisions found in Title 4 GCA \'a7\'a7 10111 and 10112.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Governor Camacho approved the memorandum on June 21, 2004.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [11]\tab }{\fs24\insrsid5449321\charrsid9783106 Meanwhile, DOA had filed a Motion to Reconsider the issuance of the Writ, arguing that the Superior Court lacked subject matter jurisdiction.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The Superior Court denied the motion, finding }{\i\fs24\insrsid5449321\charrsid9783106 inter alia }{\fs24\insrsid5449321\charrsid9783106 
that the decision to grant the writ of mandate was well supported.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The lower court also stated, on reconsideration, that \'93
the resolution of any remaining issues are [sic] best resolved by the Supreme Court,\'94 presumably including the jurisdictional challenge not addressed by the lower tribunal.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
ER, pp. 35-36 (Decision and Order, July 29, 2004).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The parties stipulated to a final judgment in the matter, which reflects that a writ shall issue.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 A Writ was simultaneously issued and entered on the docket.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The Director appeals.}{
\fs24\insrsid9783106 
\par 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 II.}{\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [12]\tab }{\fs24\insrsid5449321\charrsid9783106 We have jurisdiction over this appeal from a Superior Court final judgment.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 48 U.S.C.}{
\fs24\insrsid10173272\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 \'a7 1424-1(a)(2) (Westlaw through P.L. 109-127 (2005)); Title 7 GCA \'a7\'a7 3107(b) and 3108(a) (2005). }{\fs24\insrsid9783106 
\par 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 III.}{\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [13]\tab }{\fs24\insrsid5449321\charrsid9783106 Generally, a reviewing court examines whether the lower court\rquote s grant of a writ of mandate is supported by substantial evidence.}{
\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 See Sablan v. Gutierrez}{\fs24\insrsid5449321\charrsid9783106 , 2002 Guam 13 \'b6 6 (citing }{\i\fs24\insrsid5449321\charrsid9783106 Holmes v. Territorial Land Use Comm\rquote 
n}{\fs24\insrsid5449321\charrsid9783106 , 1998 Guam 8 \'b6 6); }{\i\fs24\insrsid5449321\charrsid9783106 see also Dumaliang v. Silan}{\fs24\insrsid5449321\charrsid9783106 , 2000 Guam 24 \'b6 5.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 However, where, as here, there are no facts in dispute, and the questions presented for review are strictly questions of law, the court\rquote s review is }{\i\fs24\insrsid5449321\charrsid9783106 de novo}{
\fs24\insrsid5449321\charrsid9783106 .}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 See id.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [14]\tab }{\fs24\insrsid5449321\charrsid9783106 In the case }{\i\fs24\insrsid5449321\charrsid9783106 sub judice}{\fs24\insrsid5449321\charrsid9783106 
, the lower court issued the writ based on its interpretation of Guam Administrative Regulations enacted pursuant to PEMRA, as well as Guam\rquote s Administrative Adjudication Law (\'93AAL\'94).}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 We review issues of statutory interpretation }{\i\fs24\insrsid5449321\charrsid9783106 de novo}{\fs24\insrsid5449321\charrsid9783106 .}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid10173272\charrsid9783106 
Bank of Guam}{\i\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 v. Reidy}{\fs24\insrsid5449321\charrsid9783106 , 2001 Guam 14 \'b6 16 (citing }{\i\fs24\insrsid5449321\charrsid9783106 Pangelinan v. Gutierrez}{
\fs24\insrsid5449321\charrsid9783106 , 2000 Guam 11 \'b6 7); }{\i\fs24\insrsid5449321\charrsid9783106 Aguon v. Gutierrez}{\fs24\insrsid5449321\charrsid9783106 , 2002 Guam 14 \'b6 5 (citing }{\i\fs24\insrsid5449321\charrsid9783106 Ada v. Guam Tel. Auth.}{
\fs24\insrsid5449321\charrsid9783106  1999 Guam 10 \'b6 10).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [15]\tab }{\fs24\insrsid5449321\charrsid9783106 Similarly, the lower court\rquote s exercise of jurisdiction in the face of a sovereign immunity challenge is reviewed }{\i\fs24\insrsid5449321\charrsid9783106 
de novo}{\fs24\insrsid5449321\charrsid9783106 .}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 See e.g., Sumitomo Constr. Co., Ltd. v. Gov\rquote t of Guam}{\fs24\insrsid5449321\charrsid9783106 , 2001 Guam 23 \'b6 7.}{
\fs24\insrsid9783106 
\par 
\par }\pard \qc \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 IV.}{\b\fs24\insrsid9783106 
\par }\pard \ql \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106\charrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid1325303\charrsid9783106 [16]\tab }{\fs24\insrsid5449321\charrsid9783106 
As a threshold matter, we must first consider the effect of the doctrine of sovereign immunity on the lower court\rquote s ability to issue the writ of mandate to compel the Director to act.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 We next determine whether the Director was required by law to hold a hearing on the ULP charge based on constructions of the AAL, PEMRA and the administrative regulations.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 Finally, we address GFT\rquote s arguments with regard to the validity of Title 2 GAR \'a7 5111(c), and the effect of Title 2 GAR \'a7 5112(c) on the proceedings. }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 A.}{\b\fs24\insrsid9783106\charrsid9783106  }{\b\fs24\insrsid5449321\charrsid9783106 Sovereign Immunity}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\widctlpar\faauto\rin0\lin0\itap0\pararsid873117 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 \chftn }{\fs24\loch\af29\insrsid85029 \hich\af0\dbch\af0\loch\f29  }{\insrsid85029 
We observe that while the Director challenged the lower court\rquote s jurisdiction to issue the writ of mandate based on sovereign immunity grounds in her opposition to GFT\rquote 
s petition for the writ, and in her motion for reconsideration, the lower court failed to address the jurisdictional issue in its decisions.  We remind the lower court of its \'93duty to analyze the merits of the motion before rendering its decision.\'94
  }{\i\insrsid85029 Mano v. Mano}{\insrsid85029 , 2005 Guam 2 \'b6 14 (quoting }{\i\insrsid85029 In re Petition of Quitugua v. Flores}{\insrsid85029 , 2004 Guam 19 \'b6 28).  In }{\i\insrsid85029 Mano}{\insrsid85029 
, the Superior Court ruled on a motion without addressing the jurisdictional argument before it, and instead based its ruling on a party\rquote s failure to file an opposition to the motion. }{\i\insrsid85029  Mano}{\insrsid85029 , 2005 Guam 2 \'b6
 15.  We remanded the matter to the Superior Court to consider jurisdiction. }{\i\insrsid85029  Id.}{\insrsid85029  \'b6 17.}{\i\insrsid85029  }{\insrsid85029  In the present case, the lower court similarly failed to \'93
analyze the merits of the motion before rendering its decision\'94 because it did not address the jurisdictional effect of sovereign immunity in its decisions on the writ petition and motion for consideration.  }{\i\insrsid85029 Id.}{\insrsid85029  \'b6
 14.  \'93Sovereign immunity implicates a court\rquote s subject matter jurisdiction. Therefore, the defense of sovereign immunity can be raised at any time, either by a party or by the court.\'94 }{\i\insrsid85029  Sumitomo}{\insrsid85029 , 2001 Guam 23 
\'b6 22 (citation omitted).  Though }{\i\insrsid85029 Mano}{\insrsid85029  underscores the Superior Court\rquote s error in failing to examine the jurisdictional issue of sovereign immunity, we now consider the issue in the present appeal.}}}{
\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [17]\tab }{\fs24\insrsid5449321\charrsid9783106 We must first determine the effect of sovereign immunity on the lower court\rquote s jurisdiction to issue the writ of mandate to compel 
Perez to act in her capacity as a government of Guam officer.}{\fs24\insrsid9783106\charrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [18]\tab }{\fs24\insrsid5449321\charrsid9783106 The Government of Guam enjoys broad sovereign immunity.}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Sumitomo}{
\fs24\insrsid5449321\charrsid9783106 , 2001 Guam 23 \'b6 8 (citing }{\i\fs24\insrsid5449321\charrsid9783106 Marx v. Gov\rquote t of Guam}{\fs24\insrsid5449321\charrsid9783106 , 866 F.2d 294, 298 (9th Cir. 1989) and }{
\i\fs24\insrsid5449321\charrsid9783106 Wood v. Guam Power Auth.}{\fs24\insrsid5449321\charrsid9783106 , 2000 Guam 18 \'b6 10).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Through the Organic Act of Guam, Congress provided a specific mechanism through which sovereign immunity may be waived.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 48 U.S.C. \'a7
 1421a (Westlaw through P.L. 109-127 (2005)); }{\i\fs24\insrsid5449321\charrsid9783106 see Marx}{\fs24\insrsid5449321\charrsid9783106 , 866 F.2d at 298.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Section 1421a of the Organic Act provides that:}{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li720\ri720\widctlpar\faauto\rin720\lin720\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 The government of Guam shall have the powers set forth in this chapter, shall have power to sue by such name, and, }{
\i\fs24\insrsid5449321\charrsid9783106 with the consent of the legislature evidenced by enacted law, may be sued}{\fs24\insrsid5449321\charrsid9783106  upon any contract entered into with respect to
, or any tort committed incident to, the exercise by the government of Guam of any of its lawful powers.}{\fs24\insrsid9783106 
\par }\pard \qj \li0\ri720\widctlpar\faauto\rin720\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 48 U.S.C. \'a7 1421a (emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Thus, the Government of Guam
\rquote s sovereign immunity is}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 waived with respect to suits upon contracts and torts only by duly enacted legislation.}{\fs24\insrsid9783106\charrsid9783106  }{
\i\fs24\insrsid5449321\charrsid9783106 See Marx}{\fs24\insrsid5449321\charrsid9783106 , 866 F.2d at 298; }{\i\fs24\insrsid5449321\charrsid9783106 see also Wood}{\fs24\insrsid5449321\charrsid9783106 , 2000 Guam 18 \'b6 10; }{
\i\fs24\insrsid5449321\charrsid9783106 Sumitomo}{\fs24\insrsid5449321\charrsid9783106 , 2001 Guam 23 \'b6\'b6 8-9.}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [19]\tab }{\fs24\insrsid5449321\charrsid9783106 While sovereign immunity from suits applies to the \'93sovereign,\'94 suits against government officers may properly be considered suits
 against the sovereign under certain circumstances. \'93A}{\cs19\fs24\cf1\insrsid5449321\charrsid9783106  judgment against a state official in his or her official capacity runs against the state and {\*\bkmkstart SearchTerm}{\*\bkmkend SearchTerm}
its treasury{\*\bkmkstart SR_3766}{\*\bkmkend SR_3766} \'93}{\cs19\fs24\cf1\insrsid9783106\charrsid9783106  }{\cs19\i\fs24\cf1\insrsid5449321\charrsid9783106 Guam Soc. of Obstetricians and Gynecologists v. Ada}{
\cs19\fs24\cf1\insrsid5449321\charrsid9783106 , 962 F.2d 1366, (9th Cir. 1990) (citing }{\cs19\i\fs24\cf1\insrsid5449321\charrsid9783106 Kentucky v. Graham}{\cs19\fs24\cf1\insrsid5449321\charrsid9783106 , 473 U.S. 159 (1985)); }{
\i\fs24\insrsid5449321\charrsid9783106 Dugan v. Rank}{\fs24\insrsid5449321\charrsid9783106 , 372 U.S. 609 (1963).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
A suit against an officer constitutes a suit against the sovereign if \'93the judgment sought would expend itself on the public treasury or domain
, or interfere with the public administration, or if the effect would be to restrain the Government from acting, or to }{\i\fs24\insrsid5449321\charrsid9783106 compel it to act}{\fs24\insrsid5449321\charrsid9783106 .\'94}{
\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Smith v. Grimm}{\fs24\insrsid5449321\charrsid9783106 , 534 F.2d 1346, 1351 n.6 (9th Cir. 1976) (quotation marks and citations omitted) (emphasis added)).}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Accordingly, as a general rule, the principles of sovereign immunity equally apply to suits against government of Guam officers.}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [20]\tab }{\fs24\insrsid5449321\charrsid9783106 The present case involves the lower court\rquote s issuance of a writ of mandate to compel the Director to conduct a hearing on th
e ULP charge submitted by Rector and GFT (collectively referred to as GFT).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Perez argues that sovereign immunity bars the court\rquote 
s exercise of jurisdiction in issuing the writ of mandate against her,}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 
\fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 \chftn }{\fs24\insrsid85029   }{\insrsid85029 The Director asserts that waiver of sovereign immunity in the present case derives from Title 5 GCA \'a7
 6105(c), the Government Claims Act, and the discretionary function exception of the Federal Tort Claims Act.  Because the issue is whether there is writ jurisdiction, it is unnecessary to address the applica
bility of the Government Claims Act in resolving whether sovereign immunity applies to the lower court\rquote s consideration and/or issuance of the instant writ of mandate against the Director.}}}{\fs24\insrsid5449321\charrsid9783106 
 while GFT asserts that the Superior Court had proper jurisdiction under Title 7 GCA, Article 2 (\'93Writ of Mandate\'94).}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\sa240\keepn\nowidctlpar\faauto
\qj \fi720\li0\ri0\sa240\keepn\nowidctlpar\faauto\pnrdate0\pnrnot1\rin0\lin0\itap0\pararsid3295469 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 \chftn }{\insrsid85029 
  GFT also disputes the applicability of the Government Claims Act where injunctive relief is sought.  However, as mentioned in the preceding footnote, we decline to address the applicability of the Governm
ent Claims Act since such consideration is unnecessary in determining the jurisdictional effect of sovereign immunity. }}}{\fs24\insrsid9783106\charrsid9783106 
\par 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid1325303\charrsid9783106 [21]\tab }{\fs24\insrsid5449321\charrsid9783106 
Sovereign immunity, as noted by GFT counsel, is not implicated in the same way when the relief sought is injunctive relief rather than damages.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid2255141\charrsid9783106 \'93
The rule is entirely different, however, when the suit is for injunctive relief.\'94 Guam Soc. of Obstetricians, 962 F.2d at 1371 (quoting Will v. Michigan Dep\rquote t of State Police, 491 U.S. 58, 63-65, 71 n.10 (1989) (applying the injunctive re
lief principle to territories)).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 This is because suits for injunctive relief are not suits against the public purse in the same way as suits for damages.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 \'93[G]ranting injunctive relief does not itself affect the public treasury.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 
Guam Soc. of Obstetricians and Gynecologists v. Ada,}{\i\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 776 F. Supp. 1422, 1430 (D. Guam 1990).}{\fs24\insrsid9783106\charrsid9783106  }{\cs19\fs24\cf1\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [22]\tab }{\fs24\insrsid5449321\charrsid9783106 
However, the distinction between injunctive relief and damages in sovereign immunity is not consequential to this issue, as this is not a suit for injunctive relief, but more spec
ifically a suit seeking an order for a public official to perform what GFT considers a ministerial duty}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
This court agrees that a Petition for Writ of Mandamus is the proper remedy when seeking an administrative hearing at the hands of an agency official.}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 
Beck Dev. Co. v. S. Pac. Transp. Co.}{\fs24\insrsid5449321\charrsid9783106 , 52 Cal. Rptr. 2d 518, 540 (Ct. App. 1996) (\'93
A petition for a writ of mandate is an appropriate remedy for compelling an administrative agency to provide a fair hearing where one has been refused.\'94).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The more specific issue, then, is whether sovereign immunity is implicated by a Petition for Writ of Mandamus.}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [23]\tab }{\fs24\insrsid5449321\charrsid9783106 Title 7 GCA \'a7 31202 provides that a writ of mandate may be issued:}{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li720\ri720\widctlpar\faauto\rin720\lin720\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 [B]y any court, [except a commissioner\rquote s court or police court,] to any inferior tribunal, corporation, board, or person }{
\i\fs24\insrsid5449321\charrsid9783106 to compel the performance of an act which the law specially enjoins, as a duty resulting from an office, trust, or station}{\fs24\insrsid5449321\charrsid9783106 ; or to compel the admission of a party to the use a
nd enjoyment of a right or office to which he is entitled, and from which he is unlawfully precluded by such inferior tribunal, corporation, board or person.}{\fs24\insrsid9783106 
\par }\pard \qj \li0\ri720\widctlpar\faauto\rin720\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 Title 7 GCA \'a7 31202 (2005) (emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Since Guam\rquote 
s mandamus statute is rooted in California Code of Civil Procedure \'a7 1085,}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain \qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 
\fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 \chftn }{\fs24\insrsid85029   }{\insrsid85029 Title 7 GCA section 31202 mirrors California Code of Civil Procedure \'a7 1085, which states in similar language: 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 {\insrsid85029 
\par }\pard \qj \li720\ri720\nowidctlpar\tx-720\faauto\rin720\lin720\itap0 {\insrsid85029 A writ of mandate may be issued by any court to any inferior tribunal, corporation, board, or person, to c
ompel the performance of an act which the law specially enjoins, as a duty resulting from an office, trust, or station, or to compel the admission of a party to the use and enjoyment of a right of office to which the party is entitled, and from which the 
party is unlawfully precluded by such inferior tribunal, corporation, board or person.
\par }\pard \ql \li0\ri0\nowidctlpar\tqc\tx4680\faauto\rin0\lin0\itap0 {\insrsid85029 \tab 
\par }\pard \qj \li0\ri0\sa240\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0 {\insrsid85029 Cal. Civ. Proc. \'a7 1085 (Westlaw through }{\cs19\cf1\insrsid85029 
2005 laws, Governor's Reorganization Plans No. 1&2, and all propositions appearing on the Nov. 8, 2005 ballot).
\par }{\cf1\insrsid85029 \line }}}{\fs24\insrsid5449321\charrsid9783106  California case law construing the identical statute is persuasive.}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Holmes}{
\fs24\insrsid5449321\charrsid9783106 , 1998 Guam 8 \'b6 6 (\'93[S]ince Guam\rquote s mandamus statutes were adopted from the California Civil Code [sic] California cases applying the mandamus standard are persuasive authority.}{
\fs24\insrsid2255141\charrsid9783106 \'94); }{\i\fs24\insrsid5449321\charrsid9783106 Ueda v. Bank of Guam}{\fs24\insrsid5449321\charrsid9783106 , 2005 Guam 23, \'b6 16 n.7 (\'93
We find California case law to be persuasive authority in the interpretation of Title 21 GCA \'a7 1254, as that section was derived from California Civil Code \'a7 711\'94).}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid1325303\charrsid9783106 [24]\tab }{\fs24\insrsid5449321\charrsid9783106 California courts recognize that \'93[t]he writ lies to compel the performance of a legal duty imposed on a government official.\'94}{
\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Envtl. Prot. Info. Ctr., Inc. v. Maxxam Corp.}{\fs24\insrsid5449321\charrsid9783106 , 6 Cal. Rptr. 2d 665, 670 (Ct. App. 1992).}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 California courts also for the most part acknowledge that \'93where the action is one simply to compel an officer to perform a duty expressly enjoined upon him by law, it may not be considered a }{
\i\fs24\insrsid5449321\charrsid9783106 suit against the state}{\fs24\insrsid5449321\charrsid9783106 .\'94}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Los Angeles County v. Riley}{\fs24\insrsid5449321\charrsid9783106 
, 128 P.2d 537, 543 (Cal. 1942) (emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 As a result, California courts have held that \'93[a]c
tions seeking traditional mandamus to compel a state officer to comply with a mandatory duty . . . do not invade sovereign immunity . . . .\'94}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 
Santa Ana Hosp. Med. Ctr. v. Belshe}{\fs24\insrsid5449321\charrsid9783106 , 65 Cal. Rptr. 2d 754, 765 (Ct. App. 1997) (discussing money awards).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 We similarly hold that Guam
\rquote s statutory writ of mandate does not invade sovereign immunity because the writ generally lies to compel the performance of a legal, mandatory duty imposed on a government of Guam official and, therefore, is not considered a suit again
st the government of Guam.}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid3295469\charrsid9783106 [25]\tab }{\fs24\insrsid5449321\charrsid9783106 Therefore, the ultimate issue is whether there is a legal duty to provide a hearing, in which case the duty is ministerial, and there is writ jurisdiction.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 If the decision whether to hold a hearing is discretionary, then there is no writ jurisdiction.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Mandamus will not lie to compel the exercise of discretion in a particular manner.}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Holmes}{\fs24\insrsid5449321\charrsid9783106 , 1998 Guam 8 \'b6 12.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Mandamus is appropriate only where there is a \'93clear, present and ministerial duty to act.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 
Id}{\fs24\insrsid5449321\charrsid9783106 . \'b6 11.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid3295469\charrsid9783106 [26]\tab }{\fs24\insrsid5449321\charrsid9783106 In co
nclusion, sovereign immunity does not prevent the issuance of a writ to perform a non-discretionary act.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The converse of this rule is that if the relief sought is a discretionary act, then we must find that the trial court erred in entertaining the petition for writ of mandate.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid1325303\charrsid9783106 B.}{\b\fs24\insrsid9783106\charrsid9783106  }{\b\fs24\insrsid5449321\charrsid9783106 Legal Duty}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid3295469\charrsid9783106 [27]\tab }{\fs24\insrsid5449321\charrsid9783106 We consider whether the Director has a legal duty to hold a hearing on the ULP charge filed by Rector and if so, whether a writ of mandamus should issue.}{
\b\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [28]\tab }{\fs24\insrsid5449321\charrsid9783106 \'93
A writ of mandate is an extraordinary remedy that may be issued by a court to compel the performance of an act which the law specifically enjoins, only if the party seeking the writ has no plain, speedy or adequate remedy in the ordinary course of law.
\'94 }{\i\fs24\insrsid5449321\charrsid9783106 Dumaliang}{\fs24\insrsid5449321\charrsid9783106 , 2000 Guam 24 \'b6 7 (citing Title 7 GCA \'a7\'a7 31202-31203).}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain 
\ql \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 \chftn }{\fs24\insrsid85029  }{\insrsid85029 Title 7 GCA section 31203 provides that a writ of mandate:
\par 
\par }\pard \ql \li720\ri720\nowidctlpar\tx-720\faauto\rin720\lin720\itap0 {\insrsid85029 
[M]ust be issued in all cases where there is not a plain, speedy, and adequate remedy in the ordinary course of law. It must be issued on the verified petition of the party beneficially interested.
\par 
\par }\pard \ql \li0\ri0\sa240\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0 {\insrsid85029 Title 7 GCA \'a7 31203 (2005).}}}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 We stated in }{\i\fs24\insrsid5449321\charrsid9783106 
Bank of Guam}{\fs24\insrsid5449321\charrsid9783106 , 2001 Guam 14:}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }\pard\plain \s26\qj \li720\ri720\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid9783106 \fs24\cf1\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid5449321\charrsid9783106 Generally, in reviewing a petition for }{
\cs25\i\insrsid5449321\charrsid9783106 mandamus }{\insrsid5449321\charrsid9783106 relief, the petitioner must show there is \'93
(1) [a] clear, present and usually ministerial duty on the part of the respondent; and (2) [a] clear, present and beneficial right in the petitioner to the performance of that duty.\'94 }{\cs25\i\insrsid5449321\charrsid9783106 
Baldwin-Lima Hamilton Corp. v. Superior Court}{\insrsid5449321\charrsid9783106 , 208 Cal. App. 2d 803, 813, 25 Cal. Rptr. 798, 805, (Ct. App. 1962) (describing basic requirements of analogous California writ of mandate statute); }{
\cs25\i\insrsid5449321\charrsid9783106 see }{\insrsid5449321\charrsid9783106 Title 7 GCA \'a7\'a7 31202, 31203 (1993)[.]}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 The primary purpose of }{\cs25\i\insrsid5449321\charrsid9783106 
mandamus}{\insrsid5449321\charrsid9783106  is the enforcement of a plain, nondiscretionary legal duty to act. }{\cs25\i\insrsid5449321\charrsid9783106 See}{\insrsid5449321\charrsid9783106  7 GCA \'a7 31202; }{\cs25\i\insrsid5449321\charrsid9783106 
see generally}{\insrsid5449321\charrsid9783106  }{\cs25\i\insrsid5449321\charrsid9783106 Farrington v. Fairfield}{\insrsid5449321\charrsid9783106 , 194 Cal. App. 2d 237, 239, 16 Cal. Rptr. 119, 120 (Ct. App. 1961). }{
\cs25\i\insrsid5449321\charrsid9783106 Mandamus}{\insrsid5449321\charrsid9783106  will not issue to compel performance of an act by one not having a clear, present, and usually ministerial duty to perform that act. }{
\cs25\i\insrsid5449321\charrsid9783106 See Baldwin-Lima Hamilton Corp.}{\insrsid5449321\charrsid9783106  208 Cal. App. 2d at 813, 25 Cal. Rptr. at 805.}{\insrsid9783106 
\par }\pard \s26\qj \li0\ri720\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin0\itap0\pararsid9783106 {\insrsid9783106 
\par }\pard \s26\qj \li0\ri0\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid9783106 {\i\insrsid5449321\charrsid9783106 Bank of Guam}{\insrsid5449321\charrsid9783106 , 2001 Guam 14 \'b6\'b6 13-14; s}{\i\insrsid5449321\charrsid9783106 
ee also Holmes}{\insrsid5449321\charrsid9783106 , 1998 Guam 8 \'b6 11; }{\i\insrsid5449321\charrsid9783106 Sablan}{\insrsid5449321\charrsid9783106 , 2002 Guam 13 \'b6 7.}{\insrsid9783106 
\par 
\par }{\b\insrsid10051235\charrsid9783106 [29]\tab }{\insrsid5449321\charrsid9783106 In this case, the lower court held, in granting GFT\rquote s petition for writ of mandate:}{\insrsid9783106\charrsid9783106  }{\insrsid9783106 
\par 
\par }\pard \s26\qj \li720\ri720\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid9783106 {\insrsid5449321\charrsid9783106 [Perez in her capacity as DOA Director] is required to hold hearings pursuant to 2 GAR Section 5210}{
\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 for the purpose of resolving the unfair labor practice which it is required to resolve.}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 
Furthermore, the Court finds that there is no reason why Respondent would be exempt from the provisions of the Administrative Adjudication Act [sic].}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 Specifically, 5 GCA Section 91
08 provides: \'93}{\i\insrsid5449321\charrsid9783106 Administrative adjudication}{\insrsid5449321\charrsid9783106  means that administrative investigation, hearing and determination by any agency of issues or cases applicable to particular parties.\'94}{
\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 The provisions of that Act would also require Respondent to conduct hearings within.}{\insrsid9783106 
\par }\pard \s26\qj \li0\ri720\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin0\itap0\pararsid9783106 {\insrsid9783106 
\par }\pard\plain \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\insrsid5449321\charrsid9783106 ER, pp. 23-25 (}{\i\fs24\insrsid2255141\charrsid9783106 Disision yan Otden}{
\fs24\insrsid5449321\charrsid9783106 , Feb. 9, 2004).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [30]\tab }{\fs24\insrsid5449321\charrsid9783106 After the Department of Administration resolved the ULP dispute, the case was transferred to a new judge, who thereafter denied DOA\rquote 
s motion for reconsideration, leaving the February 9, 2004 reasoning undisturbed.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The court also found that the decision granting the writ \'93
appears to have been based on a thorough evaluation of the parties\rquote  arguments as well as other issues the Court considered }{\i\fs24\insrsid5449321\charrsid9783106 sua sponte}{\fs24\insrsid5449321\charrsid9783106 \'94 and that such decision \'93
was clear on its face with a directive for DOA to conduct a hearing on the matter.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 ER, pp. 35-36 (}{\fs24\insrsid9388720\charrsid9783106 Decision}{
\fs24\insrsid5449321\charrsid9783106  and Order, July 29, 2004).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [31]\tab }{\fs24\insrsid5449321\charrsid9783106 Perez challenges the Superior Court\rquote s interpretation of the AAL, arguing that the AAL\rquote 
s provisions do not require her to conduct a hearing on the ULP charge due to the limited applicability of the AAL, and moreover that the procedures listed under Article 2 are applicable only when an agency hearing is required by another law.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 GFT, on the other hand, defends the trial court\rquote 
s decision, citing PEMRA, the administrative regulations promulgated through it, and finally arguing that the AAL was intended to establish appropriate procedures to protect the rights of parties in labor-management disputes. }{\fs24\insrsid9783106 

\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [32]\tab }{\fs24\insrsid5449321\charrsid9783106 In addressing whether, pursuant to the AAL, PEMRA and the PEMRA-based regulations, a hearing on a ULP claim constitutes an \'93act which the law specially enjoins,
\'94 7 GCA \'a7 31202, we begin with the plain language of the statute.}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 Aguon,}{\fs24\insrsid5449321\charrsid9783106  2002 Guam 14 \'b6 6 (citing }{
\i\fs24\insrsid5449321\charrsid9783106 Pangelinan}{\fs24\insrsid5449321\charrsid9783106 , 2000 Guam 11 \'b6 23).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Furthermore, we recognize that \'93[i]n looking at the statute
\rquote s language, the court\rquote s task is to determine whether or not the statutory language is \lquote plain and unambiguous.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The plainness or amb
iguity of statutory language is determined by reference to the language itself, the specific context in which that language is used, and the broader context of the statute as a whole.\rquote \'94}{\fs24\insrsid9783106\charrsid9783106  }{
\i\fs24\insrsid5449321\charrsid9783106 Aguon}{\fs24\insrsid5449321\charrsid9783106 , 2002 Guam 14 \'b6 6 (quoting }{\cs25\i\fs24\insrsid5449321\charrsid9783106 Robinson v. Shell Oil Co.}{\fs24\insrsid5449321\charrsid9783106 , 519 U.S. 
337, 340, 117 S. Ct. 843, 846 (1997)).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Furthermore, \'93
in expounding on a statute, we must not be guided by a single sentence or member of a sentence, but look to the provisions of the whole law, and to its object and policy.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 
Sumitomo}{\fs24\insrsid5449321\charrsid9783106 , 2001 Guam 23 \'b6 17 (quoting }{\cs25\i\fs24\insrsid5449321\charrsid9783106 Kelly v. Robinson}{\fs24\insrsid5449321\charrsid9783106 , 479 U.S. 36, 43 (1986)).}{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li720\ri0\widctlpar\faauto\rin0\lin720\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 1.}{\b\fs24\insrsid9783106\charrsid9783106  }{\b\fs24\insrsid5449321\charrsid9783106 Administrative Adjudication Law}{\fs24\insrsid9783106 

\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [33]\tab }{\fs24\insrsid5449321\charrsid9783106 Guam\rquote s AAL establishes the procedures to be followed by an agency when conducting adjudication and also addresses the procedures for agency rulemaking.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Title 5 GCA, Chapter 9 (2005).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The AAL was part of the original Government Code of Guam enacted in 1952, and was subsequently amended.}{\fs24\insrsid9783106\charrsid9783106  }{\i\fs24\insrsid5449321\charrsid9783106 See Note }{\fs24\insrsid5449321\charrsid9783106 
to Title 5 GCA, Chapter 9 (2005).}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [34]\tab }{\fs24\insrsid5449321\charrsid9783106 Title 5 GCA \'a7 9108 (2005) defines \'93administrative adjudication\'94 as \'93that admini
strative investigation, hearing, and determination by any agency of issues or cases applicable to particular parties.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The trial court found that this language supported its conclusion that a hearing was required.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [35]\tab }{\fs24\insrsid5449321\charrsid9783106 This section appears in Article 1 of the AAL, the chapter entitled \'93Definitions.\'94}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 Section 9108 merely provides a definition for the term \'93hearing\'94 and does not, by itself, create a right to a hearing.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Section 9108 does not include any reference to DOA or the duties of the Director, particularly with respect to a ULP charge.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Section 9108 also includes other definitions.}{
\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain \ql \fi720\li0\ri0\sa240\keep\keepn\widctlpar\faauto\rin0\lin0\itap0\pararsid10173272 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 
\chftn }{\insrsid85029  Sections 9102 through 9107.1 define the terms \'93agency,\'94 \'93agency member,\'94 \'93party,\'94 \'93respondent,\'94 \'93hearing officer,\'94 and \'93rule.\'94  }{\i\insrsid85029 See}{\insrsid85029 
 Title 5 GCA, Chapter 9.  (2005).}}}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The language and context of 5 GCA \'a7 9108 do not support the Superior Court\rquote 
s finding that the AAL provisions require Perez to conduct a hearing on Rector\rquote s ULP claim.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [36]\tab }{\fs24\insrsid5449321\charrsid9783106 With respect to applicability, the first provision of Article 2, Title 5 GCA \'a7 9200 (2005) states:}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 \'93The procedure of any agency shall be conducted pursuant to the provisions of this Chapter in any proceeding before an agency in which legal rights, duties or privileges of specific parties are }{
\i\fs24\insrsid5449321\charrsid9783106 required by law}{\fs24\insrsid5449321\charrsid9783106  to be determined after an agency hearing.\'94 (emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Like section 9108, section 9200 lacks any language that mandates that the Director conduct a hearing on a ULP charge.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Rather, the text of 5 GCA \'a7
 9200 simply states that the hearing procedures delineated in Article 2 must be followed by an agency }{\i\fs24\insrsid5449321\charrsid9783106 when the agency is required by law to conduct a hearing}{\fs24\insrsid5449321\charrsid9783106 .}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 In other words, if an agency is not legally required to hold a hearing, then the Article 2 hearing procedures do not apply to such agency procedures.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The plain language of Title 6 GCA \'a7 9200, therefore, does not support the lower court\rquote s holding that the Director is required to hold a hearing on this ULP claim. }{
\fs24\insrsid9783106 
\par 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid10051235\charrsid9783106 [37]\tab }{\fs24\insrsid5449321\charrsid9783106 
Accordingly, upon review of the plain language of the AAL provisions discussed above, we find that there was no support for the lower court\rquote 
s holding that the provisions of the AAL required the Director to conduct a hearing on the ULP charge filed by Rector.}{\b\fs24\insrsid9783106 
\par }{\fs24\insrsid9783106\charrsid9783106 
\par }{\b\fs24\insrsid5449321\charrsid9783106 2.}{\b\fs24\insrsid9783106\charrsid9783106  }{\b\fs24\insrsid5449321\charrsid9783106 Public Employee Management Relations Act}{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [38]\tab }{\fs24\insrsid5449321\charrsid9783106 
The next issue we must address is whether PEMRA imposes on the Director a legal duty to conduct a hearing on a ULP charge. PEMRA establishes the rights, duties and limitations of public employees, employee organizations and management officials.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Title 4 GCA \'a7 Chapter 10 (2005).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
PEMRA delineates the particular types of conduct which constitute unfair labor practices.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The provisions of PEMRA further require the Director to issue regulations on procedures for determining the merits of ULP allegations.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 4 GCA \'a7 10111 (2005).}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Unlike the AAL, PEMRA includes provisions with specific references to unfair labor practices, DOA and the Director.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 We review each of these provisions in turn. }{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid10051235\charrsid9783106 [39]\tab }{\fs24\insrsid5449321\charrsid9783106 Entitled \'93Unfair Labor Practices,\'94 Title 4 GCA \'a710111 sets forth prohi
bited conduct of management officials and employee organizations, and includes \'93restraining, coercing or interfering with the exercise of the rights assured to public employees by the terms of this Chapter.\'94}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 Title 4 GCA \'a7 10114 (2005), entitled \'93Grievances,\'94 addresses a different aspect of PEMRA.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Grievances are not unfair labor practices and do not relate to them; grievance procedures \'93shall not extend to the settlement of disputes or allegations of }{\i\fs24\insrsid5449321\charrsid9783106 unfair labor practices}{
\fs24\insrsid5449321\charrsid9783106  for which procedures are otherwise provided by law or regulation.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 4 GCA \'a7 10114(b)}{\i\fs24\insrsid5449321\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 (emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid10051235\charrsid9783106 [40]\tab }{\fs24\insrsid5449321\charrsid9783106 Addressing both, however, Title 4 GCA \'a7 10115 (2005), entitled \'93
Executive Branch and Responsibility, states: }{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li720\ri720\widctlpar\faauto\rin720\lin720\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 A comprehensive employee-management relations program, consistent with the policies in this Chapter, . . . shall be administered by the }{
\i\fs24\insrsid5449321\charrsid9783106 Director, Department of Administration}{\fs24\insrsid5449321\charrsid9783106 
, who shall have the powers and functions described in this Chapter, in addition to the responsibilities heretofore or hereafter assigned to that }{\i\fs24\insrsid5449321\charrsid9783106 Department}{\fs24\insrsid5449321\charrsid9783106 .}{
\fs24\insrsid9783106 
\par }\pard \qj \li0\ri720\widctlpar\faauto\rin720\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 (Emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 This provision simply defines the term \'93
unfair labor practices.\'94}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The plain language of this provision cannot be read to require that the Director hold a hearing on a ULP charge.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Other PEMRA provisions establish that negotiated g
rievance procedures do not apply to the settlement of ULP allegations, and mandate that the DOA director administer an employee-management relations program and formulate procedures to determine the merits of ULP allegations.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Title 4 GCA \'a7\'a7 10111, 10114-10116.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
None of these provisions contain language requiring a ULP hearing.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Title}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 4}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 GCA, Chapter 10.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
We therefore hold that the provisions of the PEMRA statutes do not themselves require the Director to hold a hearing on a ULP claim.}{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li720\ri0\widctlpar\faauto\rin0\lin720\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 3.}{\b\fs24\insrsid9783106\charrsid9783106  }{\b\fs24\insrsid5449321\charrsid9783106 Administrative regulations}{\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [41]\tab }{\fs24\insrsid5449321\charrsid9783106 We must now decide whether the regulatory provisions promulgated through PEMRA impose a legal duty on the Director to hold a ULP hearing.}{\fs24\insrsid9783106 

\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [42]\tab }{\fs24\insrsid5449321\charrsid9783106 The administrative regulations found in the GAR, and also entitled \'93The Public Employee-Management Relations Act,\'94
 mirror the provisions of its authorizing statute, PEMRA, and establish procedures governing proceedings before the Director pursuant to the statute.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Title 2 GAR, Chapter 5 (1997)}{\i\fs24\insrsid5449321\charrsid9783106 .}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Especially important to the case }{\i\fs24\insrsid5449321\charrsid9783106 sub judice}{
\fs24\insrsid5449321\charrsid9783106 , the regulations provide for the Director\rquote s discretion in determining the truth of a ULP allegation.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 2 GAR \'a7 5111(c) (1997).}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Such regulations were formulated through the Director\rquote s rule-making authority under PEMRA, specifically Title 4 GCA \'a7 10116.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 2 GAR, Chapter 5; 4 GCA \'a7 10116. }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [43]\tab }{\fs24\insrsid5449321\charrsid9783106 The lower court held that the Director was required to hold a hearing on the ULP charge pursuant to Title 2 GAR \'a7 5210, under \'93Part B. Rules of Procedure\'94
 of the regulations.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 ER, pp. 23-25 (}{\i\fs24\insrsid5449321\charrsid9783106 Disision Yan Otden}{\fs24\insrsid5449321\charrsid9783106 , Feb. 9, 2004).}{\fs24\insrsid9783106 

\par 
\par }\pard \qj \li0\ri0\widctlpar\faauto\qj \li0\ri0\widctlpar\faauto\pnrdate647768750\pnrnot1\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid10051235\charrsid9783106 [44]\tab }{\fs24\insrsid5449321\charrsid9783106 
The Director argues this is in error because ULP hearings are discretionary under the regulations.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
She asserts that Part B of the relevant regulations provides procedures for such hearings }{\i\fs24\insrsid5449321\charrsid9783106 if}{\fs24\insrsid5449321\charrsid9783106  the Director deems a hearing necessary.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 While GFT concedes that the regulations under Part B govern the }{\i\fs24\insrsid5449321\charrsid9783106 conduct}{\fs24\insrsid5449321\charrsid9783106 
 of such hearings, it asserts that a ULP hearing is mandatory unless waived by the parties pursuant to Title 2 GAR \'a7 5221(c).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid10051235\charrsid9783106 [45]\tab }{\fs24\insrsid5449321\charrsid9783106 Title 2 GAR \'a7 5210 (1997), labeled \'93Scope,\'94 establishes that, \'93}{
\i\fs24\insrsid5449321\charrsid9783106 [t]hese rules govern procedure}{\fs24\insrsid5449321\charrsid9783106 
 before the Director of Administration under the Public Employee-Management Relations Act of Guam as now or hereafter amended, and such other related acts as may now or hereafter be administered by the Director.\'94}{\fs24\insrsid9783106\charrsid9783106  
}{\fs24\insrsid5449321\charrsid9783106 (Emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Section 5210 sets forth who shall conduct a hearing, the nature of the hearing, and the duties, powers and limitations of a hearings officer.}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid939577 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\fs24\super\insrsid85029 \chftn }{\insrsid85029   Title 2 GAR \'a7 5210 (1997) provides:
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid939577 {\insrsid85029 
\par }\pard \qj \li720\ri720\nowidctlpar\tx-720\faauto\rin720\lin720\itap0\pararsid939577 {\insrsid85029 \tab (a) }{\insrsid85029\charrsid9388720 Who Shall Conduct.}{\b\insrsid85029  }{\insrsid85029  The hearing for the purpose of taking evid
ence may be conducted by the }{\i\insrsid85029 Director}{\insrsid85029  or hearings officer.
\par 
\par \tab (b) }{\insrsid85029\charrsid9388720 Nature Of Hearing. }{\insrsid85029  The hearing shall be open to the public, unless otherwise provided by the rules, or ordered, for good cause, by the }{\i\insrsid85029 Director}{\insrsid85029 
 or hearings officer.
\par 
\par \tab (c) }{\insrsid85029\charrsid9388720 Duty Of Hearings Officer.}{\insrsid85029   It shall be the duty of the hearings officer to inquire fully into all matters at issue to obtain a full and complete record.
\par 
\par \tab (d) }{\insrsid85029\charrsid9388720 Powers Of Hearings Officer.}{\insrsid85029   The hearings officer shall have the authority, subject to the Act and the rules, to:
\par 
\par }\pard \qj \fi720\li1440\ri1440\nowidctlpar\tx0\faauto\rin1440\lin1440\itap0\pararsid939577 {\insrsid85029 (1) Give notice concerning the hearing.
\par (2) Administer oaths and affirmations.
\par (3) Take or cause depositions to be taken whenever the ends of justice would be served thereby.
\par (4) Rule upon offers of proof and receive relevant evidence.
\par (5) Call, examine and cross-examine witnesses and to introduce into the record documentary or other evidence.
\par (6) Limit lines of questioning or testimony which are repetitive, cumulative or irrelevant.
\par (7) Hold conferences for the settlement or simplification of the issues.
\par (8) Dispose of procedural requests, motions or similar matters which shall be made part of the record of the proceedings, recommend dismissal of cases or portions thereof, and to order hearings reopened prior to issuance of the hearings officer\rquote 
s report and recommendations.
\par (9) Request the parties at any time during the hearing to state their respective positions concerning any issue in the proceedings or theory in support thereof.
\par (10) Dispose of any other matter that normally and properly arises in the course of any proceedings, and to take any other action authorized by the Act, rules or by any other statute.
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\tx-720\faauto\rin720\lin720\itap0\pararsid939577 {\insrsid85029 \tab (e) }{\insrsid85029\charrsid9388720 Termination Of Hearings Officer\rquote s Authority.}{\insrsid85029   The hearings officer\rquote 
s authority in each case will terminate either upon the submission of his findings, conclusions and recommendations to the }{\i\insrsid85029 Director}{\insrsid85029 , or upon the certification of the record in the proceeding to the }{\i\insrsid85029 
Director}{\insrsid85029 , or when he shall have withdrawn form [sic] the proceeding upon considering himself disqualified, or when he has been withdrawn by the }{\i\insrsid85029 Director}{\insrsid85029  for good cause shown.
\par 
\par \tab (f) }{\insrsid85029\charrsid9388720 Disqualification Of Hearings Officer.}{\insrsid85029   Upon approval of the }{\i\insrsid85029 Director}{\insrsid85029 , a hearings officer assigned by the }{\i\insrsid85029 Director}{\insrsid85029 
 to hold a hearing and to make recommendations shall withdraw from the }{\i\insrsid85029 Director}{\insrsid85029 
, for good cause found, after timely affidavits alleging personal bias or other disqualifications have been filed and the matter has been heard by the }{\i\insrsid85029 Director}{\insrsid85029 .
\par 
\par \tab (g) }{\insrsid85029\charrsid9388720 Substitution.}{\insrsid85029   A hearings officer may be substituted at any time for the hearings officer previously presiding.
\par 
\par }\pard \qj \li720\ri720\keepn\nowidctlpar\tx-720\faauto\rin720\lin720\itap0\pararsid939577 {\insrsid85029 \tab (h) }{\insrsid85029\charrsid9388720 Unavailability Of Hearings Officer. }{\insrsid85029 
 In the event the hearings officer designated to conduct the hearing becomes unavailable, the }{\i\insrsid85029 Director}{\insrsid85029  may designate another hearings officer for the purpose of further hearing or issuance
 of a report and a recommendation on the record as made, or both.
\par 
\par }\pard \qj \li0\ri0\sa240\keepn\nowidctlpar\tx-1440\faauto\rin0\lin0\itap0\pararsid939577 {\insrsid85029 (Emphasis added). }}}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Title 2 GAR \'a7 5211(c) (1997), entitled \'93
Waiver of Hearing,\'94 states that \'93[t]he Parties to an agreed statement of facts }{\i\fs24\insrsid5449321\charrsid9783106 may}{\fs24\insrsid5449321\charrsid9783106  agree to a waiver of a hearing.\'94}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 (Emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 These provisions do not contain language mandating that the DOA director hold a hearing on a ULP charge.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The sections are also located in \'93Part B. Rules of Procedure\'94 of the regulations.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The text and context of the Part B provisions of the regulations, therefore, do not support the writ of mandate against the Director because such regulations do not impose on her a duty to hold a hearing on the ULP charge filed by Rector. Nor do the \'93
General\'94 provisions in \'93Part A\'94 of the regulations support the conclusion that a hearing is statutorily required.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Finally, there is no support for the argument that section 10116 of PEMRA requires the Director to hold a hearing on a ULP charge.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The regulations\rquote 
 authorizing statute consequently cannot be read as mandating such hearing. }{\fs24\insrsid9783106 
\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [46]\tab }{\fs24\insrsid5449321\charrsid9783106 More importantly, Title 2 GAR \'a7 5111(c) (1997) provides:}{\fs24\insrsid9783106 
\par 
\par }\pard \qj \li720\ri720\widctlpar\faauto\rin720\lin720\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 Any charge of an unfair labor practice shall be filed in writing with the Director and }{\i\fs24\insrsid5449321\charrsid9783106 
he shall take such action as he determines necessary to ascertain the truth of the allegation.}{\i\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
Upon completion of his investigation, the Director shall forward his findings in writing to the Governor.}{\fs24\insrsid9783106 
\par }\pard \qj \li0\ri720\widctlpar\faauto\rin720\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106 
\par }\pard \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid5449321\charrsid9783106 (Emphasis added).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The plain language of this section 
means that the Director may hold a hearing if she believes such hearing is \'93necessary to ascertain the truth\'94 of the ULP charge, but the provision does not require such hearing.}{\fs24\insrsid9783106\charrsid9783106  }{
\i\fs24\insrsid5449321\charrsid9783106 Id.}{\i\fs24\insrsid9783106 
\par }{\fs24\insrsid9783106\charrsid9783106 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [47]\tab }{\fs24\insrsid5449321\charrsid9783106 We therefore hold that the lower court erred in issuing the mandate based on the administrative regulations.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 Petitioner failed to meet the burden of proving a legal duty and right to a hearing on the ULP claim.}{\cs15\fs24\super\insrsid5449321\charrsid9783106 \chftn {\footnote \pard\plain 
\qj \fi720\li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs15\insrsid85029 \chftn }{\insrsid85029 
   This court does not address whether the lack of a statutorily mandated hearing on an unfair labor practice c
laim, specifically, a demotion in alleged retaliation for union activity, invokes the protections of procedural due process outlined in such cases as }{\i\insrsid85029 Board of Regents of State College v. Roth,}{\insrsid85029 
 408 U.S. 564 (1972), as this issue has not been properly presented to the court.  }}}{\fs24\insrsid9783106 
\par 
\par }\pard\plain \s28\qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid10051235\charrsid9783106 [48]\tab }{\insrsid5449321\charrsid9783106 
Finally, we note that the federal counterpart to the regulation in question, found at 5 C.F.R. \'a7 2423.8, contains the following sentence, \'93The Regional Director, on behalf of the General Counsel, conducts such investigation of the
 charge as the Regional Director deems necessary.\'94}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 This sentence is verbatim in the Guam regulation, in 2 GCA. \'a7 5207(c) (\'93
The [Director] shall take such action as he deems necessary . . .\'94).}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 However the federal regulation contains a second sentence:}{\insrsid9783106\charrsid9783106  }{
\insrsid5449321\charrsid9783106 \'93During the course of the investigation, all parties involved are afforded an opportunity to present their evidence and views to the Regional Director.\'94}{\insrsid9783106\charrsid9783106  }{
\insrsid5449321\charrsid9783106 Title 5 C.F.R. \'a7 2423.8.}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 The Guam counterpart has no such sentence.}{\insrsid9783106\charrsid9783106  }{\insrsid5449321\charrsid9783106 
This reveals that the express intention was to allow the Director to conduct such investigation as he feels necessary but there was a conscious decision not to expressly state that a hearing would be guaranteed.}{\insrsid9783106\charrsid9783106  }{
\insrsid5449321\charrsid9783106 The court takes this as further evidence that there is no statutory or regulatory right to a hearing.}{\insrsid9783106\charrsid9783106  }{\insrsid9783106 
\par 
\par }\pard\plain \qj \li0\ri0\widctlpar\faauto\rin0\lin0\itap0\pararsid9783106 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\fs24\insrsid10051235\charrsid9783106 {\*\bkmkstart SR_4072}{\*\bkmkstart SR_5718}{\*\bkmkstart SR_4931}
{\*\bkmkstart SR_6867}{\*\bkmkstart SR_6893}{\*\bkmkstart SR_10129}{\*\bkmkstart SR_10161}{\*\bkmkstart SR_11968}{\*\bkmkstart SR_2964}{\*\bkmkstart SR_2995}{\*\bkmkend SR_4072}{\*\bkmkend SR_5718}{\*\bkmkend SR_4931}{\*\bkmkend SR_6867}
{\*\bkmkend SR_6893}{\*\bkmkend SR_10129}{\*\bkmkend SR_10161}{\*\bkmkend SR_11968}{\*\bkmkend SR_2964}{\*\bkmkend SR_2995}[49]\tab }{\fs24\insrsid5449321\charrsid9783106 GFT defends the writ of mandate issued by the lower court by challenging the v
alidity of Title 2 GAR \'a7 5111(c).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 GFT argues that the regulatory provision should be stricken because section 5111(c) is inconsistent with PEMRA\rquote s \'93
Declaration of Policy\'94 under Title 4 GCA \'a7 10102.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 GFT also asserts that the drafters of the regulations wr
ongfully omitted provisions of the Federal Labor Relations Authority, because the Director did not \'93consult with and consider the view of identifiable interested employee organizations\'94 in formulating the ULP regulations.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Appellee\rquote s Brief, pp. 6-10 (May 3, 2005).}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
In rebuttal, DOA argues that the regulations, including 2 GAR \'a7 5111(c), were properly promulgated through authority granted to the DOA director in PEMRA, and that GFT\rquote s challenge of 2 GAR \'a7
 5111(c) in a writ of mandate proceeding was improper.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 GFT essentially argues that 2 GAR \'a7 5111(c) is not consistent with the AAL, PEMRA and the regulations themselves.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 However, this cannot change the fact that none of the statutes quoted imposes a legal duty to hold a hearing.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 

\par 
\par }{\b\fs24\insrsid10051235\charrsid9783106 [50]\tab }{\fs24\insrsid5449321\charrsid9783106 Finally, in defending the trial court\rquote s issuance of the writ, GFT relies on an analogy with the PEMRA alternative dispute resolution methods in 2 GAR \'a7
 5112(c), which specifically reference a hearing.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The Director asserts that such issues could not be raised for the first time o
n appeal since no exceptional circumstances justify the failure to raise the issue below.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Rather than rule on whether these issues are properly before us, we reject GFT\rquote 
s argument by analogy.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The PEMRA mediation statutes clearly address a hearing, but the PEMRA statutes and regulations do not require a hearing.}{
\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 It is on this basis that we conclude the trial court was not justified in granting the writ.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid9783106 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid5449321\charrsid9783106 IV.}{\b\fs24\insrsid9783106 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\fs24\insrsid9783106\charrsid9783106 
\par }\pard \qj \li0\ri0\keep\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9783106 {\b\fs24\insrsid10051235\charrsid9783106 [51]\tab }{\fs24\insrsid5449321\charrsid9783106 We hold that the lower court erred in holding that pursuant to the laws of Guam, the Dire
ctor of the Department of Administration is required to a conduct a hearing on the unfair labor practice claim filed by Matthew J. Rector against the Department of Education.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 
The applicable Guam laws with respect to such claim, found in the Administrative
 Adjudication Law, the Public Employee-Management Relations Act, and Guam Administrative Regulations, do not support the conclusion of the trial court that a hearing was required.}{\fs24\insrsid9783106\charrsid9783106  }{
\fs24\insrsid5449321\charrsid9783106 Consequently, whether to hold a hearing is a discretionary act.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 The law do
es not support a writ to issue compelling the performance of a discretionary act.}{\fs24\insrsid9783106\charrsid9783106  }{\fs24\insrsid5449321\charrsid9783106 Accordingly, we }{\b\fs24\insrsid5449321\charrsid9783106 REVERSE}{
\fs24\insrsid5449321\charrsid9783106  and }{\b\fs24\insrsid5449321\charrsid9783106 REMAND}{\fs24\insrsid5449321\charrsid9783106  for entry of judgment consistent with this opinion.}{\fs24\insrsid9783106 
\par }}