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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid1770547\charrsid12344561 IN THE SUPREME COURT OF GUAM}{\b\insrsid12344561\charrsid12344561 
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\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 FLEET SERVICES, INC.,
\par }{\insrsid1770547\charrsid12344561 Plaintiff-Appellant,}{\b\insrsid1770547\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 vs.
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid12276137 DEPARTMENT OF ADMINISTRATION,}{\b\insrsid1770547\charrsid12344561 
\par GOVERNMENT OF GUAM,}{\insrsid1770547\charrsid12344561 
\par Defendant-Appellee,
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 and}{\b\insrsid1770547 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 KLOPPENB}{\b\insrsid12276137 URG ENTERPRISES, INC., a Member}{\b\insrsid1770547\charrsid12344561 
\par and on Behalf of}{\b\insrsid12276137  Kloppenburg Enterprises, Inc.,}{\b\insrsid1770547\charrsid12344561 
\par G}{\b\insrsid12276137 UAM SANKO TRANSPORTATION, INC.,}{\b\insrsid1770547\charrsid12344561 
\par and MICRONESIAN HOSPITALITY,}{\b\insrsid12276137  INC.,}{\b\insrsid1770547\charrsid12344561 
\par a Joint Venture Partnership,}{\insrsid1770547\charrsid12344561 
\par Intervenor-Appellee.}{\insrsid12344561\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 Supreme Court Case No. CVA05-005 (consolidated with CVA05-006)
\par Superior Court Case Nos. CV1993-03 and CV0337-04}{\insrsid12344561\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 OPINION}{\insrsid1770547\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 Filed: March 30, 2006}{\insrsid1770547\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 Cite as:}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 2006 Guam 6}{\insrsid12344561\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 Appeal from the Superior Court of Guam 
\par Argued and submitted on November 3, 2005
\par Hag\'e5t\'f1a, Guam}{\insrsid12344561\charrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }\trowd \irow0\irowband0\ts11\trgaph120\trleft0\trkeep\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl120\trpaddr120\trpaddfl3\trpaddfr3 \clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone 
\cltxlrtb\clftsWidth3\clwWidth4230\clshdrawnil \cellx4230\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth5130\clshdrawnil \cellx9360\pard 
\ql \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid12344561 {\ul\insrsid1770547\charrsid12344561 For Plaintiff-Appellant Fleet Services}{\insrsid1770547\charrsid12344561 :
\par Bill R. Mann, }{\i\insrsid1770547\charrsid12344561 Esq.}{\insrsid1770547\charrsid12344561 
\par Berman O\rquote Connor Mann & Shklov
\par Ste. 503, Bank of Guam Bldg.
\par 111 Chalan Santo Papa
\par Hag\'e5t\'f1a, GU 96910\cell }{\ul\insrsid1770547\charrsid12344561 For Defendant-Appellee Dept. of Administration}{\insrsid1770547\charrsid12344561 :
\par Joseph F. Guthrie, }{\i\insrsid1770547\charrsid12344561 Esq.}{\insrsid1770547\charrsid12344561 
\par Deputy Attorney General
\par }{\insrsid12344561 Office of the Attorney General}{\insrsid1770547\charrsid12344561 
\par 287 W. O\rquote Brien Dr.
\par Hag\'e5t\'f1a, GU 96910
\par \cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid1770547\charrsid12344561 \trowd \irow0\irowband0\ts11\trgaph120\trleft0\trkeep\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl120\trpaddr120\trpaddfl3\trpaddfr3 
\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4230\clshdrawnil \cellx4230\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone 
\cltxlrtb\clftsWidth3\clwWidth5130\clshdrawnil \cellx9360\row }\pard \ql \li0\ri0\nowidctlpar\intbl\faauto\rin0\lin0\pararsid12344561 {\insrsid1770547\charrsid12344561 \cell }{\ul\insrsid1770547\charrsid12344561 
For Intervenor-Appellee Kloppenburg Enters. Inc.}{\insrsid1770547\charrsid12344561 :
\par Alicia A. Limtiaco, }{\i\insrsid1770547\charrsid12344561 Esq.}{\insrsid1770547\charrsid12344561 
\par Limtiaco Cruz & Sison, PLLC
\par 777 Rte. 4 Ste. 11B, MVP Business Ctr.\~
\par Sinajana, GU 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\insrsid1770547\charrsid12344561 \trowd \irow1\irowband1\lastrow 
\ts11\trgaph120\trleft0\trkeep\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl120\trpaddr120\trpaddfl3\trpaddfr3 \clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4230\clshdrawnil \cellx4230
\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth5130\clshdrawnil \cellx9360\row }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 

\par }{\insrsid1770547\charrsid12344561 BEFORE:}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 F. PHILIP CARBULLIDO, Chief Justice; FRANCES M. TYDINGCO-GATEWOOD, Associate Justice; MIGUEL S. DEMAPAN, Justice }{
\i\insrsid1770547\charrsid12344561 Pro Tempore}{\insrsid1770547\charrsid12344561 .}{\insrsid12344561\charrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 CARBULLIDO, C.J.:}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [1]}{\insrsid1770547\charrsid12344561 \tab This appeal arises from the procurement for the operation, management and maintenance of the Guam Public Transit System.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 Defendant-Appellee Department of Administration (\'93DOA\'94) issued a Request for Proposal, and responses were submitted by Plaintiff-Appel
lant Fleet Services, Inc. and a joint venture comprised of Intervenor-Appellee Kloppenburg Enterprises, Inc. (\'93KEI\'94), Guam Sanko Transportation and Micronesian Hospitality, Inc..}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 When DOA announced its intent to award the contract to KEI, Fleet filed two separate protests with DOA.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Both protests were rejected and Fleet then filed two separate lawsuits in the Superior Court, based on the two separate protests.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Both cases were dismissed for different reasons, and appealed to this court.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [2]}{\insrsid1770547\charrsid12344561 \tab We hold that th
e procurement for the operation, management and maintenance of the Guam Public Transit System was not for professional services, and thus, does not fall within any of the statutory exceptions to the requirement competitive sealed bidding in Executive Bran
ch contracts.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 We further hold that the procurement procedure in this case is contrary to law, and therefore, the procedure used is invalidated, and the proposed award is canceled.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Accordingly, we hold the trial court erred in dismissing the cases below, and we reverse.}{\insrsid12344561 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 I.}{\insrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 [3]}{\insrsid1770547\charrsid12344561 \tab 
In September 2003, DOA issued DOARFP 03-001, an RFP for the operation, management and maintenance of the Guam Public Transit System.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Proposals were timely submitted by KEI, and by Fleet, who had been operating the transit system pursuant to an award of a contract.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [4]}{\insrsid1770547\charrsid12344561 \tab In September 2003, KEI received notice that it was tentatively selected as the primary offeror for the RFP.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 DOA then requested official written price offers from both Fleet and KEI.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 According to John A. Limtiaco, Fleet Services\rquote 
 President and General Manager, DOA requested that he submit a \'93best and final offer\'94 in a sealed envelope and deliver it to DOA.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Transcript (\'93Tr.\'94) at 29 (Hr\rquote 
g on Mot. for Prelim. Inj., Mar. 11, 2004).}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [5]}{\insrsid1770547\charrsid12344561 \tab In September 2003, Fleet was notified that it was awarded the contract, subject to negotiations and protests.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 KEI filed a protest on September 30, 2003.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
In October 2003, DOA notified Fleet that because of errors in the RFP, it intended to cancel the RFP and issue a new one.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 DOA later change
d its position and notified Fleet that it intended to begin negotiations with KEI.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
DOA and KEI finalized contract negotiations in November 2003, and DOA later issued a notice of intent to award the contract to KEI.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 A.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Fleet\rquote s First Protest Letter}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [6]}{\insrsid1770547\charrsid12344561 \tab After DOA issued its notice of intent to award the contract to KEI, Fleet filed a protest, arguing that KEI\rquote 
s submission was noncompliant because KEI did not have accessible vehicles that complied with the federal Americans with Disabilities Act.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 DOA denied this protest.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 In December 2003, Fleet filed a Complaint in CV1993-03, and made a Motion for Preliminary Injunction.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The trial court denied Fleet\rquote s Motion for Preliminary Injunction in January 2004.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [7]}{\insrsid1770547\charrsid12344561 \tab Fleet then filed a second motion for preliminary injunction, alleging that the decision to award the RFP to KEI was arbitrary, capricious and in violation of the law.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 On March 11, 2004, the trial court conducted an evidentiary hearing on this motion, and later denied the Second Motion for Preliminary Injun
ction, finding that Fleet had failed to prove that DOA\rquote s decision to award the contract to KEI was arbitrary, capricious, or in violation of the law.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
In March 2005, the court entered a judgment dismissing the case, pursuant to Rule 65(a)(2) of the Guam Rules of Civil Procedure and its March 30, 2004 Decision and Order.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The Judgment of Dismissal was entered on the Superior Court docket.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Fleet timely filed its Notice of Appeal in CVA05-006.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 B.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Fleet\rquote s Second Protest Letter}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [8]}{\insrsid1770547\charrsid12344561 \tab Fleet filed a second protest letter in January 2004, arguing that KEI had failed to include,}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
pursuant to 5 GCA \'a7 5233, an affidavit stating the names and addresses of major shareholders who hold more than 10% of the interest in the partnership, and an affidavit stating the names and
 addresses of persons who have received or are entitled to receive compensation (including a commission or a gratuity) for the business related to the procurement.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Fleet\rquote 
s protest was also based on}{\cf2\insrsid1770547\charrsid12344561  }{\insrsid1770547\charrsid12344561 KEI\rquote s failure to include its business license in its submission.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
When DOA denied the protest, Fleet then filed a new complaint, in CV337-04, in March 2004.}{\super\insrsid1770547\charrsid12344561 1{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 1}{\insrsid1770547   }{\fs20\insrsid1770547 Fleet filed the new complaint even before the trial court had entered judgment of dismissal in CVA1993-03.}}}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 In April 2004, KEI filed a Motion to Dismiss for Lack of Jurisdiction and for Failure to State a Claim Upon Which Relief Could be Granted.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 DOA joined in both motions.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Fleet filed oppositions to the motions and filed its own Motion for Summary Judgment in August 2004.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The trial court conducted a hearing on both motions.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
In its Decision and Order of October 22, 2004, the trial court granted the Motion to Dismiss for Lack of Personal Jurisdiction, finding that the protest and petition had not been timely filed.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 The trial court entered a judgment in February 2005, dismissing the case pursuant to its Decision and Order of October 22, 2004.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The Judgment of Dismissal was entered on the Superior Court docket, and}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Fleet timely filed its Notice of Appeal in CVA05-005.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [9]}{\insrsid1770547\charrsid12344561 \tab On appeal, the cases were consolidated in the interest of judicial economy.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
At oral argument, further briefing was requested regarding whether the procurement in this case was within the scope of procurement of \'93other professionals\'94 as set forth in 5 GCA \'a7 5121 (2005).}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 Supplemental briefs were timely submitted by the parties.}{\insrsid12344561 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 II.}{\insrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 [10]}{\insrsid1770547\charrsid12344561 \tab This court has jurisdiction over appeals from a final judgment.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 48 U.S.C. \'a7 1424-1(a)(2) (Westlaw through Pub. L. 109-169 (2006)); 7 GCA \'a7\'a7 3107, 3108(a) (2005).}{\insrsid12344561 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 III.}{\insrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 [11]}{\insrsid1770547\charrsid12344561 \tab Ultimately, this case requires that we examine the trial court\rquote s interpretation of Guam\rquote 
s procurement statutes and regulations; thus, our review in this case is }{\i\insrsid1770547\charrsid12344561 de novo}{\insrsid1770547\charrsid12344561 .}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 
E.C. Dev. v. Gen. Conference of Seventh-Day Adventist}{\insrsid1770547\charrsid12344561 , 2005 Guam 9 \'b6 12 (citing }{\i\insrsid1770547\charrsid12344561 Carlson v. Guam Tel. Auth.}{\insrsid1770547\charrsid12344561 , 2002 Guam 15 \'b6 16).}{
\insrsid12344561 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 IV.}{\insrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 [12]}{\insrsid1770547\charrsid12344561 \tab The parties here raise several arguments.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 Fleet challenges KEI\rquote s proposal in response to the RFP.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Fleet argues that the trial court erred in concluding that it was reasonable for the DOA Selection Committee (\'93Committee\'94) to determine KEI was a qualified offeror, and in ultimately holding that the Committee\rquote 
s determination was not arbitrary, capricious, or contrary to law.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Fleet next argues that the trial court erred in holding that its second protest letter was not timely 
and in dismissing the case.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 KEI and DOA maintain that the trial court\rquote 
s analysis was correct under Guam law, and that the cases were properly dismissed. The RFP itself did not cite any statutes or regulations, but it is undisputed that the parties believed they were using the competitive sealed proposal process.}{
\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [13]}{\insrsid1770547\charrsid12344561 \tab Before addressing the specific arguments raised by the parties, we first examine the RFP and the procurement process used in this case.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 A.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Executive Branch Procurement Under Guam Law}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [14]}{\insrsid1770547\charrsid12344561 \tab The Guam Procurement Law, Chapter 5 of}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Title 5 of the Guam Code Annotated, applies to procurement within the Executive Branch:}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 \'a7 5125. Application of this Chapter to Executive Branch.}{\b\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 \tab 
Every governmental body which is in the purview of the Executive Branch . . . shall be governed by Articles 1, 3, 6, 7, 10, 11 and 12 of this Chapter . . . .}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 It is the intent of }{\i\insrsid1770547\charrsid12344561 I Liheslaturan Gu\'e5han}{\insrsid1770547\charrsid12344561 
 [the Legislature] to require all Executive Branch gover
nmental bodies . . . to be governed to the maximum extent practicable by Chapter 5 of Title 5 of the Guam Code Annotated. This provision requires any governmental body, and each above-named body, to conduct their procurement activities pursuant to Chapter
 5 of Title 5 of the Guam Code Annotated . . . .}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 5 GCA \'a7 5125 (2005).}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The Guam Procurement Law provides for several methods of procuring government contracts applicable to the Executive Branch, and expressly mandates the use of the competitive sealed bid process.}{\super\insrsid1770547\charrsid12344561 2{\footnote 
\pard\plain \qj \fi720\li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 2}{\insrsid1770547   }{\fs20\insrsid1770547 
Mass transit services for Guam was once under the autonomous agency, the Guam Mass Transit Authority (\'93GMTA\'94), but the GMTA was abolished by section 23(b) of Guam Public Law 26-76 (Mar. 12, 2002).  This public law further provided that \'93[a]ll th
e powers, duties, responsibilities and jurisdiction of the former GMTA are hereby transferred to the Department of Administration.\'94  Guam Pub. L. 26-76:23(b) (Mar. 12, 2002). 
\par }\pard \qj \li0\ri0\sa240\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid1770547 \tab There is no dispute that DOA is \'93[under] the purview of the Executive Branch\'94 as contemplated by 5 GCA \'a7 5125. First, DOA \'93
is within the Executive Branch of the government of Guam.\'94  5 GCA \'a7 3101 (2005).  Second, Guam Public Law 26-76 gave to DOA \'93the }{\i\fs20\insrsid1770547 exclusive}{\fs20\insrsid1770547 
 franchise for the furnishing of public transportation within Guam and on its roads and highways.\'94
  Guam Pub. L. 26-76:24 (Mar. 12, 2002) (passed by legislative override).  Therefore, the procurement for mass transit services is undoubtedly a procurement under the Executive Branch, and as such, must comply with the Guam Procurement Law.  }{
\i\fs20\insrsid1770547 See}{\fs20\insrsid1770547  5 GCA \'a7 5125.}}}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 \'93
Unless other wise [sic] authorized by law, all territorial contracts shall be awarded by competitive sealed bidding, pursuant to \'a7 5211 of this Article, except for the procurement of professional services . . . . \'94}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 5 GCA \'a7 5210(a) (2005).}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The exceptions to the sealed bid process are delineated by statute:}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 small purchases pursuant to 5 GCA \'a7 5213; sole source procurement pursuant to 5 GCA \'a7 5214; emergency procurement pursuant to 5 GCA \'a7 5215; procurement of certain services
 specified in 5 GCA \'a7 5121 pursuant to 5 GCA \'a7 5216; and procurement from nonprofit corporations pursuant to 5 GCA \'a7 5217.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [15]}{\insrsid1770547\charrsid12344561 \tab  The competitive sealed bid process is set out in statute at 5 GCA \'a7 5211, and in regulation at 2 GAR Div. 4 \'a7 3109 (1997).}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 Although 5 GCA \'a7 5210(a) states a preference for sealed bidding, in many cases, sealed bidding is the only procedure permitted by law.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The exceptions, as indicated above, are limited, and Guam law no longer provides for an alternative to sealed bidding except as provided above.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Prior to 1985, government contracts could be awarded using the competitive sealed proposal process previously set forth in 5 GCA \'a7 5212.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The Guam Legislature, however, repealed section 5212 when it passed section 8 of Guam Public Law 18-8, which was effective retroactive to April 1, 1985.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Guam Pub. L. 18-8:8 (July 8, 1985); Compiler\rquote s Note, 5 GCA \'a7 5210.}{\super\insrsid1770547\charrsid12344561 3{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 3}{\insrsid1770547   }{\fs20\insrsid1770547 Specifically, section 8 of Guam Public Law 18-8 repealed Government Code \'a7 6959.2, which is the source of 5 GCA \'a7
 5212, governing competitive sealed proposals.  The public law stated:  \'93Section 6959.2 of the Government Code is repealed. This Section 8 shall take effect retroactively as of April 1, 1985.\'94}}}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 The repeal of the statute repealed the corresponding regulation, 2 GAR Div. 4 \'a7 3110, relating to competitive sealed proposals.}{\super\insrsid1770547\charrsid12344561 4{\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 4}{\insrsid1770547   }{\fs20\insrsid1770547 For some unknown reason, 2 GAR Div. 4 
\'a7 3110, governing competitive sealed proposals, was still included in the 1997 publication of the GAR.  However, according to the GAR now available on the Compiler of Laws website, 2 GAR Div.4 \'a7
 3110 now relates to procurement from nonprofit organizations. }{\i\fs20\insrsid1770547 See}{\fs20\insrsid1770547  }{\field{\*\fldinst {\insrsid1770547    HYPERLINK "http://www.guamcourts.org/CompilerofLaws" }}{\fldrslt {\cs79\fs20\ul\cf2\insrsid1770547 
http://www.guamcourts.org/CompilerofLaws}}}{\fs20\insrsid1770547 .}}}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Georgia v. Heckler}{\insrsid1770547\charrsid12344561 , 768 F.2d 1293, 1299 (11th Cir. 1985) (citing }{
\i\insrsid1770547\charrsid12344561 United States v. Larienoff}{\insrsid1770547\charrsid12344561 , 431 U.S. 864 (1977) (stating that an agency regulation which conflicts with a statute is without any legal effect)); }{\i\insrsid1770547\charrsid12344561 
see also}{\insrsid1770547\charrsid12344561  2 GAR Div. 4 \'a7 3108, note (1997) (stating that the \'93[o]riginal subsection (a) repealed \'93to r
eflect repeal of competitive sealed proposals and to add reference to exemptions for non-profit organizations.1/1/1999\'94).}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Therefore, competitive bidding must be used unless the procurement falls within certain statutory exceptions.}{\super\insrsid1770547\charrsid12344561 5{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0
\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 5}{\insrsid1770547   }{\fs20\insrsid1770547 The relevant inquiry
 in this case, however, relates to the statutory exception for professional services, found at 5 GCA \'a7 5121 and 2 GAR Div. 4 \'a7 3110.  Notably, the exception for professional services is specifically stated again in 5 GCA \'a7 5210(a).}}}{
\insrsid12344561 
\par 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 1.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Incorporation by reference}{\b\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [16]}{\insrsid1770547\charrsid12344561 \tab Notwithstanding the repeal of the competitive sealed proposal statute, DOA argues that this procedure continues to be a viable method of procurement.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 DOA maintains that by referring to 5 GCA \'a7 5212, 5 GCA \'a7 5210 incorporated section 5212 by reference, rendering its repeal ineffective.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 DOA further argues that because the repeal of section 8 of Guam Public Law 18-8 was ineffective, then section 5210(a) continues to allow for competitive sealed proposals as a method of procuring government contracts.}{
\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [17]}{\insrsid1770547\charrsid12344561 \tab We are not persuaded by DOA\rquote s argument.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 We do not dispute that 5 GCA \'a7
 5210(a)(1) contains a reference to 5 GCA \'a7 5212, which for reasons unknown, remained even after the repeal effectuated by Guam Public Law 18-8.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 It is unclear whether the r
eference to section 5212 was due to mere oversight.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 It is clear, however, that the Legislature in 2004 enacted a new section 5212, entitled \'93
Bid Security and Performance Bond Requirement for Contractors.\'94}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 By section 2 of Guam Public Law}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
270127 enacting a new section 5212, the Legislature confirmed its earlier action of repealing former section 5212 and its intent not to retain the former section 5212 in any form.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
It is equally clear that when the Legislature passed section 8 of Guam Public Law 18-8, it repealed 5 GCA \'a7 5212, which provided for competitive sealed proposals.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
If it was the intent of the Legislature to later change its mind, it could have clearly stated so.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 As such, we are not persuaded by DOA\rquote 
s argument that the incorporation by reference of section 5212 into section 5210 permits the use of competitive sealed proposals as it existed prior to its repeal by Guam Public Law 18-8.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [18]}{\insrsid1770547\charrsid12344561 \tab In the instant case, it is undisputed that despite the repeal, the parties purported to have engaged in the competitive sealed proposal process.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 DOA issued a \'93Request for Proposal\'94 and the parties submitted proposals in response.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Throughout the proceedings below, the trial court also acknowledged that the proposal process was used.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Therefore, to be upheld, the procurement must fall within one of the statutory exceptions to the sealed bidding process.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 If none of the exceptions apply, the procurement viol
ates Guam law and must be set aside.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 We next examine the exceptions to competitive sealed bidding.}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 2.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Statutory exceptions to competitive sealed bidding}{
\b\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561\charrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [19]}{\insrsid1770547\charrsid12344561 \tab Guam law sets out the limited exceptions to the statutory requirement of competitive sealed bidding:}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
small purchases}{\super\insrsid1770547\charrsid12344561 6{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 6}{
\insrsid1770547   }{\fs20\insrsid1770547 Title 5 GCA \'a7 5213 (2005) states: \'93}{\b\fs20\insrsid1770547 \'a7 5213.  Small Purchases.}{\fs20\insrsid1770547 
  Any procurement not exceeding the amount established by regulation may be made in accordance with small purchase procedures promulgated by the Policy Office, provided, 
however, that procurement requirements shall not be artificially divided so as to constitute a small purchase under this Section.\'94  Furthermore, 2 GAR Div. 4  \'a7 3111 (1997) provides that a small purchase under 5 GCA \'a7 5213 is defined as \'93
a procurement of less than $15,000 for supplies or services and less than $50,000 for construction.\'94}}}{\insrsid1770547\charrsid12344561 ; sole source procurement}{\super\insrsid1770547\charrsid12344561 7{\footnote \pard\plain 
\qj \fi720\li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 7}{\insrsid1770547   }{\fs20\insrsid1770547 Title 5 \'a7 5214 (2005) states:
\par }\pard \qj \li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid1770547 
\par }\pard \qj \fi-720\li720\ri720\sa240\sl-254\slmult0\nowidctlpar\tx720\faauto\rin720\lin720\itap0 {\fs20\insrsid1770547   \tab }{\b\fs20\insrsid1770547 \'a7 5214. Sole Source Procurement.}{\fs20\insrsid1770547 
  A contract may be awarded for a supply, service, or construction item without competition when, under regulations promulgated by the Policy Office, the Chief Procurement Officer, the Director of Public Works, the head of a purchasing agency, or a design
ee of either officer above the level of the Procurement Officer determines in writing that there is only one source for the required supply, service or construction item.}}}{\insrsid1770547\charrsid12344561 ; emergency procurement}{
\super\insrsid1770547\charrsid12344561 8{\footnote \pard\plain \qj \fi720\li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 8}{\insrsid1770547   }{
\fs20\insrsid1770547 Title 5 GCA \'a7 5215 (2005) states:
\par }\pard \qj \li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid1770547 
\par }\pard \qj \li720\ri720\sa240\sl-254\slmult0\nowidctlpar\tx720\tx1440\tx2160\tx2880\tx3600\tx4320\faauto\rin720\lin720\itap0\pararsid9515245 {\b\fs20\insrsid1770547 \'a7}{\b\fs20\insrsid9515245  }{\b\fs20\insrsid1770547 5215. Emergency Procurements.}{
\fs20\insrsid1770547 
  Notwithstanding any other provision of this Chapter, the Chief Procurement Officer, the Director of Public Works, the head of a purchasing agency, or a designee of either officer may make or authorize others to make emergency procurements when the
re exists a threat to public health, welfare, or safety under emergency conditions as defined in regulations promulgated by the Policy Office . . . . .}{\insrsid1770547 \tab }}}{\insrsid1770547\charrsid12344561 
; and procurement from nonprofit corporations pursuant to 5 GCA 5217.}{\super\insrsid1770547\charrsid12344561 9{\footnote \pard\plain \qj \fi720\li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 9}{\insrsid1770547   }{\fs20\insrsid1770547 Title 5 GCA \'a7 5217 (2005) states:
\par }\pard \qj \li0\ri0\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0 {\fs20\insrsid1770547 
\par }\pard \qj \li720\ri720\sa240\sl-254\slmult0\nowidctlpar\faauto\rin720\lin720\itap0 {\fs20\insrsid1770547  }{\b\fs20\insrsid1770547 \'a7 5217. Procurement from Nonprofit Corporations.}{\fs20\insrsid1770547 
  A contract may be awarded for a supply or service without competition when the contractor is a nonprofit corporation employing sheltered or handicapped workers. As a condition of the award of the cont
ract the contractor must certify that labor on the project will be performed by handicapped persons except that supervisory personnel do not have to be handicapped. A contractor awarded a contract pursuant to this Section shall not be required to post any
 of the bonds required under Article 5 of this Chapter.}}}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 These exceptions do not apply to this case.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The operation, management and maintenance of the Guam Public Transit system cannot be considered a small purchase pursuant to 5 GCA \'a7 5213 because it is not a service for less than $15,000; a sole source procurement pursuant to 5 GCA \'a7
 5214 because there is more than one source;}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 an emergency procurement pursuant to 5 GCA \'a7 5215 because there was no stated emergency; or procurement from nonprofit corporatio
ns pursuant to 5 GCA \'a7 5217 because nonprofit services were not sought.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [20]}{\insrsid1770547\charrsid12344561 \tab The remaining exception in 5 GCA \'a7 5216 governs the}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
procurement of certain services specified in 5 GCA \'a7 5121.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 This \'93professional services\'94 exception is the relevant inquiry in this case.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [21]}{\insrsid1770547\charrsid12344561 \tab Title 5 GCA \'a7 5121 states:}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 \'a7 5121.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 
Authority to Contract for Certain Services and Approval of Contracts.}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi720\li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 (a)}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 General Authority.}{\insrsid12344561\charrsid12344561 
 }{\i\insrsid1770547\charrsid12344561 For the purpose of procuring the services of accountants, physicians, lawyers, dentists, licensed nurses, other licensed health professionals and other professionals}{\insrsid1770547\charrsid12344561 
, any governmental body of Guam may act as a purchasing agency and contract on its own behalf for such services, }{\i\insrsid1770547\charrsid12344561 subject}{\insrsid1770547\charrsid12344561 
 to this Chapter and regulations promulgated by the Policy Office . . . .}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 (Emphasis added.)}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The exception is also set out in regulation.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Title 2 GAR Div. 4 \'a7 2112 states:}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 \'a72112. Authority to Contract for Certain Services and Approval of Contracts (Guam Procurement Act \'a75121 of Title 5}{
\insrsid1770547\charrsid12344561 ). (a) }{\b\insrsid1770547\charrsid12344561 General Authority.}{\i\insrsid1770547\charrsid12344561  For the purpose of procuring the services of accountants, physicians, lawyers, dentists and other professionals}{
\insrsid1770547\charrsid12344561 , any governmental body of this territory may act as a purchasing agency and contract on its own behalf for such services, subject to the provisions of the Guam Procurement Act, and these Regulations . . . .}{
\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 (Emphasis added.).}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Title 2 GAR Div. 4 \'a7 3114 further states: }{
\insrsid12344561 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 \'a73114. Competitive Selection Procedures for Services Specified in \'a7
2112 (Authority to Contract for Certain Services and Approval of Contracts) of these Regulations. }{\insrsid1770547\charrsid12344561 (a) }{\b\insrsid1770547\charrsid12344561 Application}{\insrsid1770547\charrsid12344561 . }{
\i\insrsid1770547\charrsid12344561 The provisions of this Section apply to every procurement of the services of accountants, physicians, lawyers, dentists, and other professionals as specified in \'a72112}{\insrsid1770547\charrsid12344561 
 (Authority to Contract for Certain Services and Approval of Contracts) of these Regulations.}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 (Emphasis added.).}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [22]}{\insrsid1770547\charrsid12344561 \tab The issue is whether the procurement in this case is for professional services.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 B.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Professional Services Exception to Competitive Sealed Bidding}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [23]}{\insrsid1770547\charrsid12344561 \tab We have long held that in cases of statutory construction, we start with the plain language of the statute.}{\insrsid12344561\charrsid12344561  }{
\i\insrsid1770547\charrsid12344561 Pangelinan v. Gutierrez}{\insrsid1770547\charrsid12344561 , 2000 Guam 11 \'b6 23, }{\i\insrsid1770547\charrsid12344561 aff\rquote d}{\insrsid1770547\charrsid12344561 , 276 F.3d 539 (9th Cir. 2002).}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Furthermore, our \'93task is to determine whether or not the statutory language is \lquote plain and unambiguous\rquote \'94 and our inquiry in this regard \'93\lquote 
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}{\insrsid12344561 
\par 
\par }{\i\insrsid1770547\charrsid12344561 Aguon v. Gutierrez}{\insrsid1770547\charrsid12344561 , 2002 Guam 14 \'b6 6 (quoting }{\i\insrsid1770547\charrsid12344561 Robinson v. Shell Oil Co.}{\insrsid1770547\charrsid12344561 , 519 U.S. 337, 340, 341 (1997)).}{
\insrsid12344561 
\par 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 1.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Definition of \'93professional services\'94}{\insrsid12344561 

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [24]}{\insrsid1770547\charrsid12344561 \tab The term \'93professional services\'94 is not defined in the Guam Procurement Law, Chapter 5 of Title 5 GCA, or in corresponding procurement regulations.}{
\super\insrsid1770547\charrsid12344561 10{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 10}{\insrsid1770547 
  }{\fs20\insrsid1770547 Although \'93professional services\'94 is not defined within the Guam Procurement Law, Chapter 5 of Title 5 of the GCA, this term is defined with regard to business structures.  \'93Professional services\'94
 is defined in the chapter governing professional corporations as \'93any type of professional services which may be lawfully rendered only pursuant to a license, certification or registration authorized by the Business License Law (11 GCA Chapter 26).
\'94  18 GCA \'a7 8102(a) (2005).  This term is also defined in relation to limited liability companies as \'93any type of personal service that requires as a condition precedent to the rendering of the service the obtaining of a license, permit, 
registration, or other legal authorization, including but not limited to the personal service rendered by an architect, attorney-at-law, certified public accountant, dentist, doctor, physician, public accountant, surgeon, or veterinarian.\'94  18 GCA \'a7
 15102(7) (2005).}}}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 We may start with a literal reading of the term, }{\i\insrsid1770547\charrsid12344561 see Aguon}{\insrsid1770547\charrsid12344561 , 2002 Guam 14 \'b6
 7, as we did in }{\i\insrsid1770547\charrsid12344561 Yasuda Fire & Marine Insurance Co. v. Heights Enterprises}{\insrsid1770547\charrsid12344561 , 1998 Guam 5.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 In }{
\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561 , we examined the concept of \'93professional services\'94 in the context of the insurance industry.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The suit in }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561  was initiated by a claim against a general contractor, who then sued Heights for defective workmanship arising from pest extermination services.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Yasuda had issued a general liability insurance policy to Heights which excluded \'93
bodily injury or property damage due to . . . (D) the rendering or failure to render professional services.\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  \'b6 3.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The trial court had ruled that the professional services exclusion in the policy excluded Heights from coverage, and in
 so doing, implicitly held that pest extermination services were professional services.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [25]}{\insrsid1770547\charrsid12344561 \tab Heights appealed, arguing }{\i\insrsid1770547\charrsid12344561 inter alia}{\insrsid1770547\charrsid12344561 , that the trial court 
incorrectly found that the professional services exclusion in the policy excluded coverage.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Yasuda countered that professional services was no longer limited to the traditional fields of law and medicine.}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  \'b6 25.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 This court \'93adopt[ed] a definition of professional services which stays truer to a literal interpretation of the language--the rendering of services professionally\'94
 and in doing so, made the distinction between \'93the professional versus the amateur.\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561 , 1998 Guam 5 \'b6 28.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 In }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561 , this court plainly interpreted \'93professional\'94
 as one who receives money, while at the same time stating that \'93[g]etting paid is not the issue, but rather the status of the service provider as one generally paid for rendering such services. . . . [T]his court vi
ews the status of the service provider as having weight equal to that of the service or act provided.\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  \'b6 28.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Although this definition is somewhat lacking in clarity, we do not overrule our holding that both the status of the service provider and the 
service or act provided should be considered equally.}{\super\insrsid1770547\charrsid12344561 11{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 11}{\insrsid1770547   }{\fs20\insrsid1770547 We believe, however, that this court in }{\i\fs20\insrsid1770547 Yasuda Fire & Marine Ins. Co. v. Heights Enters.}{
\fs20\insrsid1770547 , 1998 Guam 5, apparently accorded greater weight to \'93the status of the service provider as one generally paid for rendering such services.\'94  }{\i\fs20\insrsid1770547 Id.}{\fs20\insrsid1770547  \'b6
 28.  This is because the court omitted any analysis of the \'93service or act\'94 of pest extermination, and instead focused on the status of the service provider.}}}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 a.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 status of the service provider}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [26]}{\insrsid1770547\charrsid12344561 \tab We now apply the two factors articulated in }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561  to the case at bar.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 With regard only to \'93status of the service provider,\'94 it is undisputed that a business responsible for the management, operation and maintenance of a public transit system would 
\'93generally [be] paid for rendering such services.\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  \'b6 28.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Based on this factor alone, the procurement in this case may be interpreted as falling within the professional services exception, and therefore excluded from competitive sealed bidding.}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 Our inquiry, however, must also consider \'93the act or service\'94 sought by the RFP.}{\insrsid12344561 
\par 
\par }\pard \qj \li1440\ri0\nowidctlpar\faauto\rin0\lin1440\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 b.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 service or act provided}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [27]}{\insrsid1770547\charrsid12344561 \tab Both KEI and DOA rely on cases that, like }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561 , expanded the scope of the \'93professional services
\'94 exception in procurement disputes.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 In }{\i\insrsid1770547\charrsid12344561 Shively v. Belleville Township High School}{\insrsid1770547\charrsid12344561 
, 769 N.E.2d 1062 (Ill. App. Ct. 2002), the court applied the statutory professional services exception to a construction management agreement, and articulated the following rule:}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 \'93
Where the services require the exercise of
 professional and significant business judgment in providing important services on behalf of the government body, then the award of those contracts is exempt from the competitive-bidding process pursuant to the relevant professional-services exception.
\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  at 1068.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [28]}{\insrsid1770547\charrsid12344561 \tab KEI and DOA also cite }{\i\insrsid1770547\charrsid12344561 Malloy v. Boyertown Area School Board}{\insrsid1770547\charrsid12344561 , 657 A.2d 915, 919 (Pa. 1995) and }{
\i\insrsid1770547\charrsid12344561 County Council v. SHL System House Corp.}{\insrsid1770547\charrsid12344561 , 60 F. Supp. 2d 456, 462 (E.D. Pa. 1999), where the courts held that professional services were those that \'93
involve quality as the paramount concern and require a recognized professional and special expertise,\'94 with both courts quoting }{\i\insrsid1770547\charrsid12344561 In re: 1983 Audit Report of Belcastro}{\insrsid1770547\charrsid12344561 
, 595 A.2d 15, 21 (Pa. 1991).}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Malloy}{\insrsid1770547\charrsid12344561  involved a construction management contract, while }{\i\insrsid1770547\charrsid12344561 County Council}{
\insrsid1770547\charrsid12344561  involved a contract for the design, development, operation and support of emergency telephone services.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [29]}{\insrsid1770547\charrsid12344561 \tab KEI and DOA also rely on }{\i\insrsid1770547\charrsid12344561 Autotote Ltd. v. New Jersey Sports &}{\i\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 
Exposition Authority}{\insrsid1770547\charrsid12344561 , 427 A.2d 55 (N.J. 1981), where the New Jersey Supreme Court acknowledged \'93that the term \lquote professional services\rquote 
 is no longer limited to the traditional professions such as law and medicine.\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id. }{\insrsid1770547\charrsid12344561 at 59.}{\insrsid12344561\charrsid12344561  }{
\i\insrsid1770547\charrsid12344561 Autotote}{\insrsid1770547\charrsid12344561  involved a dispute over an award of a contract for a totalisator system,}{\super\insrsid1770547\charrsid12344561 12{\footnote \pard\plain 
\qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 12}{\insrsid1770547   }{\fs20\insrsid1770547 The totalisator system is \'93
a complex computer network designed to tabulate and categorize the bets made on every horse in each race. The system also determines the payoff for each race, including the specialty wagers (exacta, daily double, etc.).\'94  }{\i\fs20\insrsid1770547 
Autotote Ltd. v. N.J. Sports &  Exposition Auth.}{\fs20\insrsid1770547 , 427 A.2d 55, 56 n.1 (N.J. 1981).}}}{\insrsid1770547\charrsid12344561  which \'93
involve[d] the inextricable integration of a sophisticated computer system and services of such a technical and scientific nature as to constitute \lquote professional services\rquote  within the statutory exception to the requirement of public bidding.
\'94}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id. }{\insrsid1770547\charrsid12344561 at 59.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Finally, they cite }{\i\insrsid1770547\charrsid12344561 
Nachtigall v. New Jersey Turnpike Authority}{\insrsid1770547\charrsid12344561 , 694 A.2d 1057, 1059 (N.J. Super. Ct. App. Div. 1997), where the contract was for \'93an integrated electronic toll collection system\'94 to service New Jersey\rquote 
s toll roads, bridges and tunnels.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The court in }{\i\insrsid1770547\charrsid12344561 Nachtigall}{\insrsid1770547\charrsid12344561  recognized that \'93
the proposal has some individual aspects that are not themselves professional services, such as digging the trench for the fiber optic cable and laying it, and providing the patented hardware,\'94 however, \'93
these elements of the proposal are inseparable from the predominant nature of the entire proposal, which is, essentially, an agreement . . . to provide a combination of coordinated professional services, namely traffic-consulting services.\'94}{
\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  at 1063.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Therefore, despite certain non-professional elements, the contract as a whole was \'93an integrated combination of sophisticated banking, financial, marketing, and traffic consulting services\'94 and thus, the professional services exception applied.}{
\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  at 1064.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [30]}{\insrsid1770547\charrsid12344561 \tab Taken collectively, these cases reveal that courts have expanded \'93professional services\'94
 beyond traditional fields, and have recognized that services may be professional even if they include some elements of a manual, non-professional nature.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Yet, even if we accepted these courts\rquote  interpretations, the procurement in this case could not be interpreted as one for professional services.}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 2.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 The requirements of the RFP}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [31]}{\insrsid1770547\charrsid12344561 \tab In general terms, the RFP was for the management, operation and maintenance of the island\rquote 
s public transit system, and additionally required that the winning awardee provide all the buses to be used in the operation of the system.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Close examination of the RFP, however, reve
als that DOA retained virtually all management and planning duties.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 For example, the RFP stated DOA\rquote s planning responsibilities were as follows:}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\i\insrsid1770547\charrsid12344561 DOA will have the exclusive right to plan the operations}{\insrsid1770547\charrsid12344561 
 of the public and complementary paratransit services, including, but not limited to, the right to determine and modify from time to time the following matters:}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-1170\li1890\ri720\nowidctlpar\faauto\rin720\lin1890\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 1.\tab Times of day services are to be rendered;}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-1170\li1890\ri720\nowidctlpar\faauto\rin720\lin1890\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 2.\tab Routes of which buses are to run;}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-1170\li1890\ri720\nowidctlpar\faauto\rin720\lin1890\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 3.\tab Schedules by which buses are to run;}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-720\li1440\ri720\nowidctlpar\faauto\rin720\lin1440\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 4.\tab Location and identification of stops to pick-up and discharge passengers, as well as schedule of pick-ups per stop;}{
\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-1170\li1890\ri720\nowidctlpar\faauto\rin720\lin1890\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 5.\tab Fare and fare collection procedures;}{\insrsid12344561 
\par }\pard \qj \li0\ri1440\nowidctlpar\faauto\rin1440\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li720\ri1440\nowidctlpar\faauto\rin1440\lin720\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 6.\tab Number and sizes, including seat capacity of buses in service;}{\insrsid12344561 
\par }\pard \qj \li0\ri1440\nowidctlpar\faauto\rin1440\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li720\ri1440\nowidctlpar\faauto\rin1440\lin720\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 7.\tab Advertising, promotion and public information.}{\insrsid12344561 
\par }\pard \qj \li0\ri1440\nowidctlpar\faauto\rin1440\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\i\insrsid1770547\charrsid12344561 DOA will have the right to increase or decrease the scope of public and complementary paratransit services}{
\i\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 . . . without renegotiating with Operator}{\insrsid1770547\charrsid12344561  . . . .}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 Appellant\rquote s Excerpts of Record (\'93ER\'94), CVA05-006, at 41 (Req. for Proposal) (emphases added).}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 DOA also retained certain Operational and Management Supervision responsibilities, which included the right \'93[t]o monitor the records, facilities, equipment, and personnel . . . as well as schedule
 adherence and fare box recovery procedures\'94 and \'93[t]o establish rules which are reasonable for the operations and/or maintenance of the public and complementary paratransit service.\'94}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 Appellant\rquote s ER, CVA05-006, at 41 (Req. for Proposal).}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [32]}{\insrsid1770547\charrsid12344561 \tab In contrast, the RFP detailed the offeror\rquote s Extent of Services as follows:}{\insrsid12344561 
\par 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\i\insrsid1770547\charrsid12344561 The Operator will be engaged by DOA to operate, maintain, and repair the buses}{\insrsid1770547\charrsid12344561  for DOA\rquote 
s transit services.}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Generally, the Operator will be responsible for maintaining and repairing the buses including bus washing, providing drivers}{\insrsid1770547\charrsid12344561 
 and other supervisory, maintenance, and administrative personnel, providing training as necessary, developing administrative procedures and financial records, developing methods to improve effectiveness and service efficiency.}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li720\ri720\nowidctlpar\faauto\rin720\lin720\itap0\pararsid12344561 {\i\insrsid1770547\charrsid12344561 Operator will operate buses on routes and pursuant to schedules set forth in written instructions to be prepared by DOA}{
\insrsid1770547\charrsid12344561  before the effective date, or as said routes and schedules may be extended, reduced, or otherwise modified from time to time by DOA.}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 Appellant\rquote s ER, CVA05-006, at 43 (Req. for Proposal).}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The RFP further lists the offeror\rquote s operations responsibilities, which were:}{\insrsid12344561 
\par 
\par }\pard \qj \fi-360\li1080\ri720\nowidctlpar\faauto\rin720\lin1080\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 1.\tab }{\i\insrsid1770547\charrsid12344561 [To o]perate buses}{\insrsid1770547\charrsid12344561 
 in accordance to established routes, schedules, hours, days, and time of services.}{\insrsid12344561 
\par }\pard \qj \li0\ri720\nowidctlpar\faauto\rin720\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-360\li1080\ri720\nowidctlpar\faauto\rin720\lin1080\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 2.\tab Provide qualified personnel for the management and operations of the Guam Public and Complementary paratransit services.}{
\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-360\li1080\ri720\nowidctlpar\faauto\rin720\lin1080\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 3.\tab 
Provide such training and administering such tests as may be required by local and federal regulations, including, at a minimum, first aid and CPR, ADA orientation workshops . . . defensive driving courses . . . as required by DOA.}{\insrsid12344561 

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-360\li1080\ri720\nowidctlpar\faauto\rin720\lin1080\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 4.\tab Serving as the principle [sic] source of information for the operations of the public transit system.}{\insrsid12344561 

\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \fi-360\li1080\ri720\nowidctlpar\faauto\rin720\lin1080\itap0\pararsid12344561 {\insrsid1770547\charrsid12344561 5.\tab }{\i\insrsid1770547\charrsid12344561 Selling public transit passes and disseminating route, schedule, and fare brochures.}{
\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }{\insrsid1770547\charrsid12344561 Appellant\rquote s ER, CVA05-006, at 43 (Req. for Proposal) (emphases added).}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [33]}{\insrsid1770547\charrsid12344561 \tab Fleet and DOA assert on appeal that the services for the RFP were \'93far more complex and extensive than simply and solely performing bus driver or dispatcher work.\'94
 Intervenor and Defendant-Appellees\rquote  Supp. Brief, CVA05-006, at 4.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The RFP itself clearly contradicts this statement, as it states that the offeror\rquote 
s primary duties were indeed operating, maintaining and repairing the buses, and selling bus tickets.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Unlike }{\i\insrsid1770547\charrsid12344561 Autotote}{
\insrsid1770547\charrsid12344561  and }{\i\insrsid1770547\charrsid12344561 Nachtigall}{\insrsid1770547\charrsid12344561 , the professional and non-professional elements in this case were express
ly bifurcated, and the non-professional elements fall far short of being of a technical and scientific nature.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Moreover, the duties of driving, repairing and washing buses, and selling bus tickets, simply do not require \'93recognized professional and special expertise\'94 as was described by the courts in }{\i\insrsid1770547\charrsid12344561 Malloy}{
\insrsid1770547\charrsid12344561  and }{\i\insrsid1770547\charrsid12344561 City Council}{\insrsid1770547\charrsid12344561 .}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Finally, even if in maintaining Guam\rquote 
s public transit system, the winning offeror would \'93provid[e] important services on behalf of the government body,\'94 }{\i\insrsid1770547\charrsid12344561 Shively}{\insrsid1770547\charrsid12344561 , 769 N.E.2d at 1068, h
ere DOA was responsible for planning the operations, including the schedules, routes, fares and fare collection procedures.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The remaining duties of operating, maintaining and repairing the buses simply do not \'93require the exercise of professional and significant business judgment\'94 as was contemplated in }{\i\insrsid1770547\charrsid12344561 Shively}{
\insrsid1770547\charrsid12344561 .}{\insrsid12344561\charrsid12344561  }{\i\insrsid1770547\charrsid12344561 Id.}{\insrsid1770547\charrsid12344561  at 1068.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [34]}{\insrsid1770547\charrsid12344561 \tab Taking into consideration the two }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561  factors, we first acknowledge that with regard to the \'93
status of the service provider,\'94 a business would generally receive payment for managing, maintaining and operating a mass transit system.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
As discussed above, this factor weighs toward interpreting the procurement here as one for professional services.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
In contrast, the second factor weighs against interpreting the RFP as one for professional services.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Our analysis of the RFP itself reveals that, apart from providing the buses to be used in the system, the services and acts requested were primarily operating, repairing and washing and cleaning the buses to be used; thus, we cannot interpret the \'93
service or act provided\'94 in this case as being professional.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Weighing both }{\i\insrsid1770547\charrsid12344561 Yasuda}{\insrsid1770547\charrsid12344561 
 factors equally, the procurement method used in this case does not fall within the professional services exception of 5 GCA \'a7 5121.}{\insrsid12344561\charrsid12344561  }{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [35]}{\insrsid1770547\charrsid12344561 \tab Because none of the statutory exceptions to competitive sealed bidding apply in this case, we hold that using the competitive sealed proposal process was contrary to law.}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 We further hold that the contract in this case should have been procured using the competitive sealed bidding process, in accordance with 5 GCA \'a7 5210(a).}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 For these reasons, the procurement violated Guam\rquote s Procurement Code, and therefore the procedure is invalidated, and the proposed award to KEI should be set aside.}{
\insrsid12344561 
\par 
\par }\pard \qj \li720\ri0\nowidctlpar\faauto\rin0\lin720\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 3.}{\b\insrsid12344561\charrsid12344561  }{\b\insrsid1770547\charrsid12344561 Remedy}{\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }{\b\insrsid1770547\charrsid12344561 [36]}{\insrsid1770547\charrsid12344561 \tab Our holding today invalida
tes the procurement process used in this case, and therefore, it is unnecessary to discuss the other arguments raised by the parties in their briefs.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
We look instead to available remedies in light of our holding.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 The contract, which was the subject of the RFP process erroneously used here, had not yet been awarded.}{
\super\insrsid1770547\charrsid12344561 13{\footnote \pard\plain \qj \fi720\li0\ri0\sa240\sl-254\slmult0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid9515245 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\super\insrsid1770547 13}{\insrsid1770547 
  }{\fs20\insrsid1770547 Fleet\rquote s protest letters and lawsuits are based on DOA\rquote s intent to award the contract to KEI, rather than an actual award, because no award has been made. }{\fs20\cf2\insrsid1770547  }{\fs20\insrsid1770547 
We recognize that although the tr
ansit system is currently operating, statements made by counsel for Fleet during oral argument indicate that it is possible only through an emergency procurement to ensure continued service despite the litigation, and not because of an award pursuant to t
he RFP.  Because no award was made, KEI may not seek any remedy pursuant to 5 GCA \'a7 5452 (2005), which would apply if an award had been made, but later found in violation of the law.}}}{\insrsid12344561\charrsid12344561  }{
\insrsid1770547\charrsid12344561 The appropriate remedies, therefore, are found in 5 GCA \'a7 5451 (2005), which states:}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 \'93
If prior to award it is determined that a solicitation or proposed award of a contract is in violation of law, then the solicitation or proposed award shall be:}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 (a) cancelled; or}{
\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 (b) revised to comply with the law.\'94}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 As disc
ussed above, based on the current specifications of the RFP, the only procurement method applicable here is the competitive sealed bid process.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
While the specifications could be rewritten to qualify as \'93professional services\'94 as defined herein, the current RFP would still have to be canceled and a new RFP pursued.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Therefore, the only remedy available is cancellation of the proposed award pursuant to 5 GCA \'a7 5451(a).}{\insrsid12344561 
\par 
\par }\pard \qc \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 V.}{\insrsid12344561 
\par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\insrsid12344561 
\par }\pard \qj \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid12344561 {\b\insrsid1770547\charrsid12344561 [37]}{\insrsid1770547\charrsid12344561 \tab We hold that using Request for Proposal DOARFP 03-001 to procure the operation, ma
nagement and maintenance of the Guam Mass Transit system, violated the Guam Procurement Code.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 Title 5 GCA \'a7
 5210 mandates that government contracts in the Executive Branch be awarded using the competitive sealed bidding process, subject to limited statutory exceptions.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
The procurement in this case did not fall within any of the exceptions; specifically, it was not a procurement for professional services as contemplated by 5 GCA \'a7 5121.}{\insrsid12344561\charrsid12344561  }{\insrsid1770547\charrsid12344561 
Because the procedure was conducted in violation of Guam law, the procurement is invalidated, and the proposed award is canceled.}{\insrsid12344561 
\par 
\par }{\b\insrsid1770547\charrsid12344561 [38]}{\insrsid1770547\charrsid12344561 \tab Accordingly, the trial court is }{\b\insrsid1770547\charrsid12344561 REVERSED.}{\insrsid12344561 
\par }}