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Guam Fire Dep't, CVA05-016}{\subject civil}{\author Supreme Court of Guam}{\keywords writ of mandamus}{\operator Talevakarua Laniana} {\creatim\yr2007\mo11\dy11\hr22\min3}{\revtim\yr2007\mo11\dy12\hr9\min57}{\printim\yr2007\mo10\dy16\hr10\min47}{\version7}{\edmins25}{\nofpages20}{\nofwords8485}{\nofchars48366}{\*\company Judiciary of Guam}{\nofcharsws56738} {\vern16393}{\*\password 00000000}}{\*\xmlnstbl }\paperw12240\paperh15840\margl1440\margr1440\margt1440\margb1008\gutter0 \widowctrl\ftnbj\aenddoc\hyphhotz0\grfdocevents0\notabind\noxlattoyen\expshrtn\noultrlspc\dntblnsbdb\nospaceforul\hyphcaps0\horzdoc\dghspace0\dgvspace0\dghorigin0\dgvorigin0\dghshow0\dgvshow0\jexpand\viewkind4\viewscale100\nolnhtadjtbl\rsidroot6247432 \fet0{\*\wgrffmtfilter 013f}{\*\ftnsep \pard\plain \ql \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \chftnsep \par }}{\*\ftnsepc \pard\plain \ql \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \chftnsepc \par }}{\*\aftnsep \pard\plain \ql \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \chftnsep \par }}{\*\aftnsepc \pard\plain \ql \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \chftnsepc \par }}\sectd \psz1\sbknone\linex0\headery1440\footery1008\endnhere\titlepg\sectdefaultcl\sectrsid6247432\sftnbj {\headerr \pard\plain \s16\ql \li0\ri0\widctlpar \tqc\tx4320\tqr\tx9360\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid15826070 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\i\fs20\insrsid13314286 Limtiaco v. Guam Fire Department}{\fs20\insrsid13314286 , Opinion\tab \tab Page }{\field{\*\fldinst {\cs119\fs20\insrsid13314286\charrsid15826070 PAGE }}{\fldrslt {\cs119\fs20\lang1024\langfe1024\noproof\insrsid5255231 20}}}\sectd \linex0\endnhere\sectdefaultcl\sftnbj {\cs119\fs20\insrsid13314286\charrsid15826070 of } {\field{\*\fldinst {\cs119\fs20\insrsid13314286\charrsid15826070 NUMPAGES }}{\fldrslt {\cs119\fs20\lang1024\langfe1024\noproof\insrsid13314286 33}}}\sectd \linex0\endnhere\sectdefaultcl\sftnbj {\cs119\insrsid13314286 \par }\pard \s16\ql \li0\ri0\widctlpar\brdrb\brdrs\brdrw15\brsp20\brdrcf1 \tqc\tx4320\tqr\tx9360\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid15826070 {\cs119\fs20\insrsid13314286\charrsid15826070 \par }\pard \s16\ql \li0\ri0\widctlpar\tqc\tx4320\tqr\tx9360\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid15826070 {\cs119\insrsid13314286 }{\insrsid13314286 \par }}{\*\pnseclvl1\pnucrm\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl2\pnucltr\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl3\pndec\pnstart1\pnindent720\pnhang {\pntxta .}}{\*\pnseclvl4\pnlcltr\pnstart1\pnindent720\pnhang {\pntxta )}} {\*\pnseclvl5\pndec\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl6\pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl7\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl8 \pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl9\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}\pard\plain \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 IN THE SUPREME COURT OF GUAM \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 WILLIAM M. LIMTIACO}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , \par Petitioner-Appellee, \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 vs.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par GUAM FIRE DEPARTMENT}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GOVERNMENT OF GUAM,}{\b\lang2057\langfe1033\langnp2057\insrsid6247432\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 and MICHAEL UNCANGCO, in his official capacity}{\b\lang2057\langfe1033\langnp2057\insrsid6247432\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 as Chief of the Guam Fire Department, \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Respondent-Appellant. \par \par Supreme Court Case No.:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 CVA05-016 \par }{\lang2057\langfe1033\langnp2057\insrsid7409817\charrsid1048784 Superior Court Case No.: SP}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 0261-04 \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 OPINION}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid4740241\charrsid1048784 Filed:}{\b\lang2057\langfe1033\langnp2057\insrsid1048784 }{\b\lang2057\langfe1033\langnp2057\insrsid4740241\charrsid1048784 October 15, 2007}{ \b\lang2057\langfe1033\langnp2057\insrsid6247432\charrsid1048784 \par }\pard \qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5255231 {\b\insrsid4740241\charrsid5255231 \par }{\b\insrsid9916961\charrsid5255231 Cite as:}{\b\insrsid1048784\charrsid5255231 }{\b\insrsid9916961\charrsid5255231 2007}{\b\insrsid16467882\charrsid5255231 }{\b\insrsid9916961\charrsid5255231 Guam }{\b\insrsid4740241\charrsid5255231 10}{ \b\insrsid1048784\charrsid5255231 }{\pard\plain \qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5255231 \b\v\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033\insrsid9916961\charrsid5255231 {\tc { \b\insrsid9916961\charrsid5255231 \tcl1}}}\sectd \psz1\sbknone\linex0\headery1440\footery1008\endnhere\titlepg\sectdefaultcl\sectrsid6247432\sftnbj {\b\insrsid9916961\charrsid5255231 \par \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Appeal from the Superior Court of Guam \par Argued and submitted on May 9, 2006 \par Hag\'e5t\'f1a, Guam \par \par }\trowd \irow0\irowband0\lastrow \ts11\trgaph113\trleft1440\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl113\trpaddr113\trpaddfl3\trpaddfr3\tblind1553\tblindtype3 \clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth3127\clpadt113\clpadr113\clpadft3\clpadfr3\clshdrawnil \cellx4567\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4343\clpadt127\clpadr113\clpadft3\clpadfr3\clshdrawnil \cellx8910\pard \ql \li0\ri0\nowidctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\pararsid1048784 { \ul\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Appearing for the Petitioner-Appellee:}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par David Highsmith, }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Esq}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . \par Law Office of David Highsmith \par Union Bank Bldg., Ste 209 \par 194 Hernan Cortes Ave. \par Hag\'e5t\'f1a, Guam 96910\cell }{\ul\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Appearing for the Respondent-Appellant}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 : \par Joseph A. Guthrie, }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Esq}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . \par Deputy Attorney General \par The Justice Building \par }{\lang2057\langfe1033\langnp2057\insrsid12918266\charrsid1048784 Office of the Attorney General \par 287 West O\rquote Brien Dr.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par Hag\'e5t\'f1a, Guam 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \trowd \irow0\irowband0\lastrow \ts11\trgaph113\trleft1440\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl113\trpaddr113\trpaddfl3\trpaddfr3\tblind1553\tblindtype3 \clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth3127\clpadt113\clpadr113\clpadft3\clpadfr3\clshdrawnil \cellx4567\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4343\clpadt127\clpadr113\clpadft3\clpadfr3\clshdrawnil \cellx8910\row }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 { \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 BEFORE: F. PHILIP CARBULLIDO, Chief Justice; FRANCES }{ \lang2057\langfe1033\langnp2057\insrsid4463865\charrsid1048784 M. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 TYDINGCO-GATEWOOD, Associate Justice}{\cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid8607257 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{ \insrsid13314286 }{\fs20\insrsid13314286 Associate Justice Frances M. Tydingco-Gatewood heard oral argument in this case. Prior to issuance of this Opinion, she was sworn in as Chief Judge of the U.S. District Court of Guam.}}}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ; ROBE}{\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 RT J. TORRES, Associate Justice.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 CARBULLIDO, CJ.:}{\b\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [1]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab This case involves the review of the Superior Court\rquote s grant of a writ of mandamus, compelling the Guam Fire Department to honor a \'93Stipulation and Order re: Settlement\'94 issued by the Civil Service Commission (\'93CSC\'94) awarding back pay to Petitioner-Appellee William M. Limtiaco }{ \lang2057\langfe1033\langnp2057\insrsid4463865\charrsid1048784 (\'93Limtiaco\'94) }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 on the basis that the duties sought to be compelled were ministerial.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We find that there was no legal error in issuing the writ of mandamus, and consequently we affirm. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid13314286 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 I.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [2]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab William M. Limtiaco is an Emergency Medical Technician with the Guam Fire Department}{ \lang2057\langfe1033\langnp2057\insrsid4463865\charrsid1048784 (\'93GFD\'94)}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 .}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 His official job description is Firefighter I.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Before he became Firefighter I, he was a Driver\rquote s License Examiner II at the Department of Revenue and Taxation earning $12.96 per hour.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 His move to the Fire Department was effectuated by a GG-1, \'93Request for Personnel Action.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The GG-1 states that he would be \'93transferred and demoted\'94 from Driver\rquote s License Examiner II \'93H-7\'94 at a salary of $26,965 per annum to Firefighter Recruit \'93F-10\'94 at approximately the same salary, $26,453 per annum.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The transfer was effective on May 25, 1998, and the GG-1 shows that a certifying officer certified that funds were available.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 After the transfer, Limtiaco\rquote s first paycheck reflected that he was only paid $8.48 per hour or about $17,638.00 per annum in his new position, contrary to what was stated in the GG-1. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [3]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Limtiaco claims that this lawsuit arose out of a grievance initiated on January 29, 2002.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, Limtiaco initiated other activity to retrieve his retroactive pay prior to 2002.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record shows that the Fire Chief wrote Limtiaco a memo on February 7, 2000, stating that \'93the department is aware of your Sala}{ \lang2057\langfe1033\langnp2057\insrsid4463865\charrsid1048784 r}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 y Adjustment as a result of your Transfer Promotion [sic] }{\lang2057\langfe1033\langnp2057\insrsid4463865\charrsid1048784 [the] }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 effective the date of your GG-1.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Financial constraints continues [sic] to hinder our ability to initiate any pay adjustments.\'94 R}{\lang2057\langfe1033\langnp2057\insrsid1315151\charrsid1048784 A}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , Tab 32, Ex.1, p. 3 (Pet. for Alternative Writ of Mandate and/or Prohibition).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The memo from the Fire Chief also states, \'93 your pay adjustment will be retroactive to effective date of your GG-1, once funding source has been identified.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 RA, Tab 32, Ex.1, p.}{ \lang2057\langfe1033\langnp2057\insrsid2189027\charrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 3 (Pet. for Alternative Writ of Mandate and/or Prohibition).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Apparently having not received the pay, Limtiaco filed with the Attorney General a \'93Claim Against the Government\'94 nine months later.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This was denied by the Attorney General on January 31, 2001.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The reason stated, \'93Our review of your claim shows that you accepted the position you were hired for and the corresponding pay.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 RA, Tab 32, Ex. 2, p.}{\lang2057\langfe1033\langnp2057\insrsid2189027\charrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 1 (Pet. for Alternative Writ of Mandate and/or Prohibition).}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Approximately one year later, Limtiaco brought }{\lang2057\langfe1033\langnp2057\insrsid2189027\charrsid1048784 a}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 grievance action before the CSC.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [4]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The CSC entertained the claim, and on November 13, 2003, the CSC reportedly accepted a \'93Settlement\'94 between GFD and Limtiaco.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record before this court does not contain a record of the CSC proceedings of November 13, 2003, so this court does not know what happened at that hearing.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, GFD counsel does not dispute that a settlement was entered at this hearing, and does not dispute the terms of that settlement. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [5]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab This Settlement was reduced to a writing dated June 24, 2004.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Settlement provided: \par Upon Management receiving the calculations, they shall immediately executed [sic] a GG-1 reflecti ng the correct pay grade and step that Employee William A. [sic] Limtiaco should be upon entry in the Guam Fire Department as stipulated in his Grievance Appeal Case No. 0304-GRE-03 thereby returning all his losses and capping all of his damages to the ti me of the issuance of the entry of the new GG-1. \par \par Appellant\rquote s Excerpts of Record (\'93ER\'94) Tab 2, pp. 1-2 (Stip. and Order re: Settlement, June 24, 2004).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Settlement also provided that Limtiaco\rquote s attorney Dave Highsmith would be paid $1,600.00.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This result ed in yet a new GG-1, which contains the following remark:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93Transfer and Demotion, as stipulated by the CSC \lquote Stipulation and Order. \rquote Please see attached CSC documents.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 RE, Tab 32, Ex. A (Pet. for Alternative Writ of Mandate and/or Prohibition). This new G G-1 is signed by the Fire Chief, the Personnel Officer, and the Certifying Officer indicating that funds are available.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, the Settlement itself is signed by only one of the CSC Commissioners, Chairman Luis Baza.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record contains no evidence that any other CSC Commissioner other than Chairman Baza approved the Settlement, though Limtiaco asserts in his factual assertions that four CSC Commissioners approved the Settlement.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This assertion remained unrebutted. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [6]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab By December 2004, Limtiaco had still not been paid.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 He filed a Petition for Writ of Mandamus in the Superior Court.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In January 2005, the Attorney General\rquote s office entered an appearance.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The matter went to an evidentiary hearing February 23, 2005.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 At this hearing, Fire Chief Uncangco did not deny that GFD owed the money pursuant to the Settlement.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Fire Chief also testified that if the obligation were ordered paid via a writ, that it would become a current year obligation.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [7]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab On March 10, 2005, the trial court issued the writ.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Attorney General moved for reconsideration.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This motion was denied, and the Amended Writ of Mandate was entered on the docket on August 26, 2005.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GFD timely filed a notice of appeal. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid13314286 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 II.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15826070\charrsid1048784 [8]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Generally, the grant of a writ of mandate is reviewed to determine whether the court's }{ \lang2057\langfe1033\langnp2057\insrsid4800988\charrsid1048784 j}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 udgment is supported by substantial evidence.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Pac. Rock Corp. v. Perez}{\lang2057\langfe1033\langnp2057\insrsid4800988\charrsid1048784 , 2005 Guam 15 \'b6 15.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 An appeal from trial court judgment granting mandamus relief, where there are no issues of fact in dispute, is reviewed }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 de novo}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Holmes v. Territorial Land Use Comm\rquote n}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 1998 Guam 8 \'b6 6.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 If there are issues of fact, they are reviewed for substantial evidence, and issues of law are reviewed }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 de novo}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 .}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We remain mindful that \'93[m]andamus relief is an extraordinary remedy employed in extreme situations.\'94 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Publ\rquote ns, Inc. v. Super. Ct. (Bruneman)}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 1996 Guam 6 \'b6 10. A writ of mandate may be used to compel the performance of a legal duty.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 7 GCA \'a7 31202 (2005); }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 People v. Super. Ct. (Laxamana)}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2001 Guam 26 \'b6 12.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mandamus is appropriate only where there is a \'93clear, present and ministerial duty to act.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Holmes}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 1998 Guam 8 \'b6 11. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid13314286 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 III.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 A.\tab Writ Jurisdiction of the Superior Court}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [9]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Superior Court may grant a writ of mandamus \'93 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.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 7 GCA \'a7 31203 (2005).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93[M]andamus will not {\*\bkmkstart SR_1261} {\*\bkmkend SR_1261}lie to {\*\bkmkstart SR_1263}{\*\bkmkend SR_1263}compel the {\*\bkmkstart SR_1265}{\*\bkmkend SR_1265}exercise of {\*\bkmkstart SR_1267}{\*\bkmkend SR_1267}discretion in a particular manner.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Underwood v. Guam Election Comm\rquote n}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2006 Guam 17 \'b6 14.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mandamus is appropriate only where there is a \'93clear, present and ministerial duty to act.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Fed\rquote n of Teachers ex rel. Rector v. Perez}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2005 Guam 25 \'b6 25 (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Holmes}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 1998 Guam 8 \'b6 11). \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [10]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The first question, then, is whether the compliance with an administrative body\rquote s order for back pay is discretionary or ministerial.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 If the matter is discretionary, then not only is there no writ relief available, but the discussion on sovereign immunity must be approached differently, as discussed in subsection B.2. of this Opinion. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [11]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab California cases are persuasive because Guam\rquote s writ statute }{ \lang2057\langfe1033\langnp2057\insrsid4800988\charrsid1048784 is derived}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 from California.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Fed\rquote n of Teachers ex rel. Rector v. Perez,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 2005 Guam 25 \'b6 23 n.4 (pointing out that \'93 Title 7 GCA section 31202 mirrors California Code of Civil Procedure \'a71085}{\lang2057\langfe1033\langnp2057\insrsid3297527\charrsid1048784 \'94}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ).}{ \cs36\lang2057\langfe1033\langnp2057\insrsid2189027\charrsid1048784 \chftn {\footnote \pard\plain \qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid2189027 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{\fs20\insrsid13314286 \'93California case law construing the identical statute is persuasive.\'94 }{ \i\fs20\insrsid13314286 Guam Fed\rquote n of Teachers ex rel. Rector v. Perez,}{\fs20\insrsid13314286 2005 Guam 25 \'b6 23 (quoting }{\i\fs20\insrsid13314286 Holmes v. Territorial Land Use Comm\rquote n}{\fs20\insrsid13314286 , 1998 Guam 8 \'b6 6).}}}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In California the proper way to compel a government official to honor a back-pay order of an agency is by way of a petition for writ of mandamus.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This concept was explained in }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Glendale City Employees\rquote Ass\rquote n, Inc. v. City of Glendale}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 540 P.2d 609 (Cal. 1975), where the court concluded that where the public employer has already agreed to terms of payment of public employees, then there is no discretion left on the part of the public employer and mandamus proceedings are appropriate.} {\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at 619-620.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The court in that case said, \'93the issue here is not the validity of Ordinance No. 3936, but the sufficiency of that ordinance to fulfill the city\rquote s duty under the memorandum.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at 616.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The court in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Glendale }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 explained that with the payment of public employee wages, the appropriate remedy could be mandamus and not a breach of contract action, stating, \'93 often the payment of the wages of a Public employee requires certain preliminary steps by public officials; in such instances, the action in contract is inadequate and mandate is the appropriate remedy.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at 619. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [12]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Other California cases have held similarly.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93Mandamus is a proper remedy to compel a city council or a city civil service board to perform its mandatory duties prescribed by the charter.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 LePage v. City of Oakland}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 91 Cal. Rptr. 806, 807 (Cal. App. 1970) ( citation omitted).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93 One of the essential conditions for issuance of the writ of mandate is a showing on the part of the applicant that he has a clear legal right to the performance of the act the writ would compel.\'94 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 McDaniel v. City & County of San Francisco}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 66 Cal. Rptr. 384, 386 (Cal. App. 1968).}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [13]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab California is not alone in making this ministerial versus discretionary distinction.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 See}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Odita v. Ohio Dep\rquote t of Human Servs}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . 623 N.E.2d 140, 144 (Ohio Ct. App. 1993) (\'93Contrary to respondents\rquote assertions , compliance with the order is not an executive act dependent upon the exercise of respondents\rquote judgment, but, rather, is a ministerial act that respondents may perform \lquote in obedience to the mandate of legal authority, without regard to or the exercise of [their] judgment upon the propriety of the act being done.}{\lang2057\langfe1033\langnp2057\insrsid16467882\charrsid1048784 \rquote }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'94) (citing }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 State ex rel. Trauger v. Nash}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 64 N.E. 558, 559 (Ohio 1902)). \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [14]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The ministerial duty at issue in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Odita }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 is to be compared with situations where the personnel action sought requires some exercise of judgment, more than merely complying with a pre-existing order.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In those situations, mandamus action is inappropriate.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Cf. Milford Educ. Ass\rquote n v. Bd. of Educ.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ,}{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 356 A.2d 109, 112-113 (Conn. 1975) (where the plaintiff was seeking basically a ju dicial interpretation of the terms of its contract with the defendant board of education and the payment of such sums as are due the individual teachers.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Writ relief was inappropriate because that result could easily have been attained in a simple action f or breach of contract or by an action for a declaratory judgment and consequential relief). \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [15]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab We thus examine the nature of the duty that Limtiaco sought from GFD in the record. Because an order was already in place, Limtiaco asked for a mandate that GFD:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (1) calculate his back pay, and (2) issue the new GG-1.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 These are the types of activities that the case authority has held constitute ministerial duties.}{\cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid8607257 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{ \fs20\insrsid13314286 Having concluded that there is writ jurisdiction to enforce this CSC decision, we note the Appellate Division case of }{\i\fs20\insrsid13314286 Mariano v. Guam Civil Service Commission}{\fs20\insrsid13314286 , No. CV-81-0052A, 1983 WL 30227 at *2, where the following statement is made: \'93[T]he writ of revi ew issued by the Superior Court of Guam to the Civil Service Commission must be limited to those cases where the Civil Service Commission has exceeded its jurisdiction.\'94 However, in }{\i\fs20\insrsid13314286 Mariano}{\fs20\insrsid13314286 , the Government of Guam lost the grievance case before the CSC but won its case in the Superior Court of Guam as the Superior Court \'93annulled\'94 the back pay award to Mariano. The record thus was not clear whether the Real Party in Interest-Appellant Mariano brought a petition for writ of prohibition or a petition for wr it of mandamus. In seeking a writ of prohibition, the petitioner must establish that the board or tribunal was acting in excess of its jurisdiction. Guam law states, \'93 [t]he writ of prohibition . . . arrests the proceedings of any tribunal, corporation, board, or person exercising judicial functions, when such proceedings are without or in excess of the jurisdiction of such tribunal, corporation, board, or person.\'94 7 GCA \'a7 31301 (2005). If, in }{\i\fs20\insrsid13314286 Mariano}{\fs20\insrsid13314286 , the Government of Guam was seeking to prohibit the C SC from implementing its order for back pay, it may well have had to establish the element required for prohibition, that the CSC had acted beyond its jurisdiction. This case originated as a }{\fs20\insrsid13314286\charrsid12481207 petition}{ \fs20\insrsid13314286 for writ of mandamus, which does not require that petitioner show that the tribunal acted in excess of its jurisdiction. We read the }{\i\fs20\insrsid13314286 Mariano }{\fs20\insrsid13314286 case as confined to a case where the petitioner seeks a remedy of a writ of prohibition. }}}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Discretion need not be exercised in calculating these figures or performing these acts.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GFD already agreed Limtiaco was owed his back pay at the differential stated in the documents.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Because ministerial and not discretionary duties were sought to be compelled, this situation fits into the line of cases that hold a writ of mandamus would be an appropriate vehicle for relief in seeking the performance of ministerial duties.}{ \cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid8607257 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs20\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\fs20\insrsid13314286 This Opinion does not address the statement in }{\i\fs20\insrsid13314286 Bondoc v. Worker\rquote s Compensation Commission,}{\fs20\insrsid13314286 2000 Guam 6 \'b6 6 n.2, that a petition for writ of mandamus is the prop er vehicle for appealing an agency decision. Other authority holds that a petition for writ of judicial review is the proper way to appeal a personnel decision from an agency and a writ of mandamus is not appropriate}{ \fs20\expnd-2\expndtw-10\insrsid13314286\charrsid15021868 . }{\i\fs20\expnd-2\expndtw-10\insrsid13314286\charrsid15021868 See Perez v. Judicial Council}{\fs20\expnd-2\expndtw-10\insrsid13314286\charrsid15021868 , 2002 Guam 12. }{\fs20\insrsid13314286 Limtiaco\rquote s case is not an appeal of the CSC\rquote s ruling, so the issue of how to seek judicial review of an agency\rquote s decision is not before us. }}}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [16]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab In response to the Government\rquote s argument that there is discretion that must be exercised in dec iding which of many past due government obligations to pay first, the record does not reflect that the Government even engaged in this determination.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The act of giving Limtiaco his back pay does not involve any complex policy decisions and questions of timing or priority do not exist in the record.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 If the Government presented evidence to the Superior Court of 100 past due debts and the Superior Court instructed the Government to pay only ten of the 100 past due debts, then the Government could argue that th e Superior Court infringed upon its discretionary power.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 But there is no such allegation or showing by the Government. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [17]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Concluding that the Superior Court could entertain a petition for writ of mandamus seeking compliance with the Settlement, we must now evaluate whether the Superior Court properly granted the writ.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In order to secu}{\lang2057\langfe1033\langnp2057\insrsid3297527\charrsid1048784 re the writ, Limtiaco}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 had to show to the Superior Court that he had no adequate remedy at law and that he was a beneficially interested party. Clearly, Limtiaco is beneficially interested as the named employee, but the important question is whether he has an adequate remedy a t law. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [18]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The trial court did not directly address the lack of an adequate remedy on the record.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The trial court merely found that Limtiaco had to go \'93 through extraordinary effort of hiring his lawyer, . . . where it should not have to be done.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Tr. }{ \lang2057\langfe1033\langnp2057\insrsid3746034\charrsid1048784 p}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 p. 12-13 (}{\lang2057\langfe1033\langnp2057\insrsid6832699\charrsid1048784 Hr\rquote g}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 on Pet. for Writ of Mandate, Feb. 23, 2005).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The trial court also found that \'93Personnel obligations are continuing obligations of the Government of Guam, and they do not stop with a September 30th/October 1st turnover of the fiscal year, just a s Mr. Limtiaco is not terminated as an employee of any agency just because September 30th ends and October 1 begins.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Tr.}{ \lang2057\langfe1033\langnp2057\insrsid3746034\charrsid1048784 ,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 p. 12 (}{\lang2057\langfe1033\langnp2057\insrsid6832699\charrsid1048784 Hr\rquote g}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 on Pet. for Writ of Mandate, Feb. 23, 2005). \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [19]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Under Guam law, whether a petitioner has an adequate remedy at law is determined by statutory analysis; 7 GCA \'a7 31203 requires that there be no \'93plain, speedy or adequate remedy in the ordinary course of law,\'94 and that this must be shown upon a verified petition of a beneficially interested party.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 7 GCA \'a7 31203; }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 see Laxamana}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2001 Guam 26 \'b6 23.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We find that the inconvenience of having to hire a lawyer does not suffice in this jurisdiction to fulfill the requirement that there be an inadequate remedy at law: \'93The inconvenience of proceeding to what may be an unnecessary trial has long been recognized as one of the hardships of litigation in our judicial system, but such hardship does not measure up to the inconveniences which would result if piecemeal appeals were permitted.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Gulf Research & Dev. Co. v. Harrison}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 185 F.2d 457, 459 (9th Cir. 1951).}{ \cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 { \fs20\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\fs20\insrsid13314286 }{\fs20\expnd-1\expndtw-9\insrsid13314286\charrsid15021868 We recognize that the Ninth Circuit analyzes writ jurisdiction differently than does Guam. In }{ \i\fs20\expnd-1\expndtw-9\insrsid13314286\charrsid15021868 People v. Super. Ct. (Laxamana)}{\fs20\expnd-1\expndtw-9\insrsid13314286\charrsid15021868 , 2001 Guam 26 \'b6 23 n.3, the court drew the disti nction between the analysis of Guam writ jurisdiction and how it differs from an analysis under the federal All Writs Act, 28 U.S.C. \'a7 1651. The difference between deciding writ jurisdiction under the federal standard and the Guam standard is irrelevant, however, to the principle of law contained in }{\i\fs20\expnd-1\expndtw-9\insrsid13314286\charrsid15021868 Gulf Research & Dev. Co. v. Harrison}{\fs20\expnd-1\expndtw-9\insrsid13314286\charrsid15021868 , 185 F.2d 457, 459 (9th Cir. 1951), that inconvenience and expense has never justified the invocation of writ jurisdiction. }}}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We agree that \'93inconvenience has consistently been held insufficient to justify mandamus,\'94 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 id.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , and therefore, the trial court was in error in concluding that this factor militated in favor of an inadequate remedy at law.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [20]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab }{\lang2057\langfe1033\langnp2057\insrsid16413741\charrsid1048784 Further}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , we agree with the trial court that Limtiaco had no adequate reme dy at law, but for different reasons. The nature of the agreement that Limtiaco seeks to enforce is an agreement by GFD that he is owed back pay after his transfer from a Driver}{\lang2057\langfe1033\langnp2057\insrsid6046728\charrsid1048784 \rquote }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 s License Examiner II to Firefighter I.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GFD, Limtiaco and the CSC all agree th at Limtiaco is entitled to the differential in compensation or in the back pay, thus there is no opportunity for Limtiaco to sue any of these other parties for damages.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Limtiaco seeks to have the Government perform its ministerial duty after having secured the agreement of any potential adversary.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [21]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Limtiaco has exhausted his remedies at law, i.e., a grievance under Chapter 12 of the Department of Administration Personnel Rules and Regulations, and had no other actionable remedy to bring.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 He cannot file another grievance with the CSC because the matter had been already litigated. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [22]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Government points out that 4 GCA \'a7 4408 }{\lang2057\langfe1033\langnp2057\insrsid3746034\charrsid1048784 (2005) }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 provides that the \'93Civil Service Commission may seek enforcement of its decisions and orders in all decisions and order s rendered pursuant to section 4403 of this Chapter by application to the Superior Court for the appropriate remedy.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, this is not a remedy available to Limtiaco.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 It is available to the CSC.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 There is no process by which Limtiaco could petition the CSC to go to court under section 4408 on his behalf. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [23]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Moreover, we agree with the trial court that the Government should not be able to escape its personnel obligations simply because there is a new fiscal year.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 If the Government were able to avoid its personnel obligations this way, it would never have to pay as long as }{\lang2057\langfe1033\langnp2057\insrsid12321583\charrsid1048784 a }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 new fiscal year began.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Though the trial court could have made a better record on Limtiaco\rquote s lack of a remedy at law, }{\lang2057\langfe1033\langnp2057\insrsid12321583\charrsid1048784 t}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 he}{ \lang2057\langfe1033\langnp2057\insrsid12321583\charrsid1048784 conclusion the}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 court reached was the correct result.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Superior Court properly found that Limtiaco had met the requirements for a writ of mandamus, and it was proper to grant the writ of mandate. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 B.\tab The Government Claims Act and the Civil Service Commission.}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [24]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Gover nment of Guam next advances a series of arguments meant to relieve it of liability to Limtiaco, which we will take in turn. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [25]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab GFD counsel first attacks Limtiaco\rquote s right to recover from his CSC grievance action, arguing that Limtiaco had already brought a government claim on the same issue which was denied.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Because Limtiaco did not appeal the denial of the government claim within the limitations time, GFD counsel claims Limtiaco relinquished his right to pursue the CSC grievance.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The statute of limitations on appealing a denial of a government claim under the Government Claims Act is }{ \lang2057\langfe1033\langnp2057\insrsid3746034\charrsid1048784 eighteen}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 months after denial under 5 GCA \'a7 6106 (2005).}{ \cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \qj \li0\ri0\sb240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 { \cs28\super\insrsid13314286 \tab \chftn }{\cs28\insrsid13314286 }{\fs20\insrsid13314286 Section 6106 states:}{\insrsid13314286 \par }\pard \qj \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 {\insrsid13314286 \par }\pard \qj \li720\ri720\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid8607257 {\b\fs20\insrsid13314286 \'a7 6106. Limitations on Actions and Filing. \par }\pard \qj \li1440\ri1440\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin1440\lin1440\itap0\pararsid8607257 {\fs20\insrsid13314286 (a) All claims under this Act must be filed withi n 18 months from the date the claim arose, but any claims timely filed under the predecessor of this Act shall be considered to have been timely filed under this Chapter. \par (b) Every action filed under this Chapter shall be barred unless commenced within 18 months from the time the notice that the claim was rejected was served as provided in Article 2 of this Chapter, or within 24 months after the claim was filed in cases where the government does not reject the claim. \par }\pard \qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10171854 {\fs20\insrsid13314286 5 GCA \'a7 6106 (2005). \par }}}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [26]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab This brings us to the critical issue whether the Government Claims Act even applies to awards of back pay, or to awards that result from personnel (merit system) actions generally. This analysis involves examination of the following three issues: (1) exhaustion of a dministrative remedies; (2) sovereign immunity; and (3) statute of limitations. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 1.\tab Exhaustion of Remedies}{ \lang2057\langfe1033\langnp2057\insrsid1048784 .}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [27]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Generally, even if the Government Claims Act, or some other statutory remedy, were to apply, there is a universal principle that one must exhaust one\rquote s administrative remedies before pursuing it.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93Mandamus will not be granted where the petitioner has failed to pursue the administrative remedies available to him. When an {\*\bkmkstart SR_1542}{\*\bkmkend SR_1542}administrative {\*\bkmkstart SR_1543}{\*\bkmkend SR_1543}remedy has been provided by statute, this {\*\bkmkstart SR_1550}{\*\bkmkend SR_1550}remedy must be {\*\bkmkstart SR_1553}{\*\bkmkend SR_1553}exhausted before the courts will act.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Holmes}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 1998 Guam 8 \'b6 9 (citation omitted). \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [28]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab In a case addressing agency remedies versus the Government Claims Act, }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Sumitomo Construction Co., Ltd. v. Guam}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2001 Guam 23, this court recognized that an aggrieved bidder could utilize both the procurement law and the Government Claims Act to seek relief against the Government of Guam.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We stated that \'93we reject the Government\rquote s narrow interpretation of 5 GCA \'a7 5 427(a), and hold that controversies based upon a claim for breach of contract damages are cognizable under the Procurement Law.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . \'b6 15.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Prior to }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Sumitomo}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Pacific Rock Corp. v. Department of Education }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (\'93}{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Pacific Rock II}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'94), 2001 Guam 21 \'b6 1, we stated, \'93the Procurement Law serves as the final administrative remedy that is a prerequisite to filing a claim pursuant to the Claims Act.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This statement suggests that the two remedies may co-exist, though ultimately, in }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Pacific Rock II}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , we held that a procurem ent appeal was the final agency action required before filing a government claim in a procurement case. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [29]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Based on precedent, it is incumbent on Li mtiaco to establish that he exhausted his administrative remedies before turning to the Government Claims Act.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, this issue is only relevant if the Government Claims Act is meant to apply to personnel matters of classified employees.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 As discussed below, we hold that the Government Claims Act was not meant to apply to claims for relief that arise under the merit system as dictated by the Organic Act and carried out by the Guam Legislature. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 2.\tab Sovereign Immunity for Ministerial or Discretionary Acts}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [30]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Government\rquote s main argument is that Limtiaco seeks to enforce the terms of a contract, and as such, he must comply with the Government Claims Act.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Consequently, the doctrine of sovereign immunity prevents Limtiaco from securing a writ for a money judgment against the Government of Guam since he failed to comply with the provisions of the Government Claims Act}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [31]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab However, this is a petition for a writ of mandamus seeking an order for a government official to perform a ministerial act.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Thus, we d o not analyze sovereign immunity in the same way as we would in a case where the petitioner were seeking a discretionary act, or even a case at law for damages.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 2}{\b\lang2057\langfe1033\langnp2057\insrsid8607257\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Whether sovereign immunity lies against a discretionary act of a government official imp licates the issue of whether sovereign immunity even applies when there are no money damages at stake.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This issue has not yet been addressed by this court.}{\cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid4868787 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{ \fs20\insrsid13314286 There is general law that sovereign immunity is designed to protect the public coffers, so it is not invoked when relief in the nature of injunctive relief is sought. See }{\i\fs20\insrsid13314286 Guam Soc\rquote y of Obstetricians and Gynecologists v. Ada,}{\fs20\insrsid13314286 962 F.2d 1366, 1371 (9th Cir. 1990), which stated, \'93[t]he rule is entirely different, however, when the suit is for injunctive relief.\'94 The Ninth Circuit in }{ \i\fs20\insrsid13314286 Ada }{\fs20\insrsid13314286 relied on the Supreme Court case of }{\i\fs20\insrsid13314286 Ngiraingas v. Sanchez}{\fs20\insrsid13314286 , 495 U.S. 182 (1990), which held that damage claims against gover nment of Guam officials is analyzed differently than injunctive suits because damage suits \'93would affect the public treasury.\'94 }{\i\fs20\insrsid13314286 Id. }{\fs20\insrsid13314286 at 185; see }{\i\fs20\insrsid13314286 Ada}{\fs20\insrsid13314286 , 962 F.2d at 1371. However, there is apparent case law to the contrary from the Guam Appellate Division, in }{\i\fs20\insrsid13314286 Alexander v. Bordallo}{\fs20\insrsid13314286 , No. 78-0038A, 1979 WL 24948 (D. Guam App. Div. Jan. 8, 1979). That case stated, "[i]t is clear that sovereign immunity applies to specific performance actions against the Government; otherwise the government cannot operate effecti vely if its every act is subject to injunctive actions. }{\i\fs20\insrsid13314286 Id. }{\fs20\insrsid13314286 at *1, }{\i\fs20\insrsid13314286 See Larson v. Domestic and Foreign Corp.}{\fs20\insrsid13314286 , 337 U.S. 682, 69 S. Ct. 457, 93 L. Ed. 1629 (1948). Wright and Miller, Volume 14, section 3655.\'94 }{\i\fs20\insrsid13314286 Id. }{\fs20\insrsid13314286 at *1. This case does not present an oppo rtunity to resolve this issue, but other jurisdictions have held that immunity would attach only to discretionary functions of public officials. This principle is best stated in the Texas case of }{\i\fs20\insrsid13314286 Burgess v. Jaramillo}{ \fs20\insrsid13314286 , 914 S.W.2d 246 (Tex. App. 1996), where the court stated: \par }\pard\plain \qj \li720\ri720\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid4868787 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs20\insrsid13314286 As a general rule, official immunity to suit attaches to a government employee's official actions only when the employee's job requires the exercise of personal judgment and discretion. }{\i\fs20\insrsid13314286 Travis v. City of Mesquite,}{ \fs20\insrsid13314286 830 S.W.2d 94, 102 (Tex.1992) (Cornyn, J., concurring). In contrast, a government employee's performance of duties that are merely ministerial in nature is not cloaked with official immunity. }{\i\fs20\insrsid13314286 Id.}{ \fs20\insrsid13314286 Labeling an officer's acts as discretionary is probably only a shorthand notation for a more complex policy decision. }{\i\fs20\insrsid13314286 Kassen v. Hatley,}{\fs20\insrsid13314286 887 S.W.2d 4, 9 (Tex.1994). Put differently, government employees are subject to suit if their acts are \'93ministerial\'94 acts involving mere obedience to orders or performance of duties requiring nongovernmental choices, as opposed to \'93 discretionary\'94 acts requiring personal deliberation, decision, and judgment involving the government. }{\i\fs20\insrsid13314286 City of Irving v. Pak,}{\fs20\insrsid13314286 885 S.W.2d 189, 192 (Tex. App.-Dallas 1994, writ dism'd w.o.j.); }{ \i\fs20\insrsid13314286 Tyrrell v. Mays,}{\fs20\insrsid13314286 885 S.W.2d 495, 497 (Tex. App.-El Paso 1994, writ dism'd w.o.j.). \par }\pard \qj \li0\ri0\sa240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 {\i\fs20\insrsid13314286 Id. }{\fs20\insrsid13314286 at 249.}}}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We have already established that sovereign immunity does not bar suits against public officials for ministerial duties.}{\i\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Fed\rquote n of Teachers}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2005 Guam 25 \'b6 26 (\'93[S]overeign immunity does not p revent the issuance of a writ to perform a non-discretionary act.\'94).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The duties sought to be compelled here are strictly ministerial.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, we need not decide at this time whether sovereign immunity attaches to discretionary acts of government officials.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid4868787\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 3}{\b\lang2057\langfe1033\langnp2057\insrsid4868787\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Whether sovereign immunity applies to suits for injunctive-type relief has also not been addressed by this court.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Ninth Circuit has held that it does not, albeit in an unpublished decision.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Appellate Division case of }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Power Authority v}{\i\lang2057\langfe1033\langnp2057\insrsid6046728\charrsid1048784 . Civil Service Commission,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 No. CV-97-00072A, 1988 WL 242617 (D. Guam App. Div}{\lang2057\langfe1033\langnp2057\insrsid9265934\charrsid1048784 .}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Nov. 17, 1988), was appealed to the Ninth Circuit, and the Government raised sovereign immunity as a defense.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In the appeal, the Ninth Circuit addressed the previously unlitigated issue whether sovereign immunity applies to back pay awards by the CSC.}{\lang2057\langfe1033\langnp2057\insrsid1048784 } {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The court held that sovereign immunity does not apply to back pay awards owing by the Government of Guam.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 G}{\i\lang2057\langfe1033\langnp2057\insrsid6046728\charrsid1048784 uam Power Auth.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 967 F.2d 586 (9th Cir. 1992) (unpu blished).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Ninth Circuit said:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 [W]e do not believe that the doctrine of sovereign immunity applies to grievance proceedings within a governmental agency. }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 See Delaware Dep't of Health & Social Servs. v. United States Dep't of Educ.,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 772 F.2d 1123, 1138 (3d Cir.1985) (doubting, but not deciding, that the Eleventh Amendment applies to proceedings before arbitrators). Guam's inherent sovereign immunity protects it, as a sovereign, from }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 suit}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 without its consent. }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Marx v. Government of Guam,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 866 F.2d 294, 298 (9th Cir.1989). Thus, sovereign immunity acts as a jurisdictional limit on the courts.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 {\*\bkmkstart sp_999_2} {\*\bkmkstart SDU_2}{\*\bkmkend sp_999_2}{\*\bkmkend SDU_2} \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This appeal, however, does not concern the power of a court to assert jurisdiction over a sovereign. The backpay award was ordered in a grie vance proceeding by an administrative body of the Guamanian government. The issue here, then, is the power of an agency, which was set up by the sovereign to resolve employment disputes occurring within other governmental agencies, to award monetary damag es in the form of backpay. Because the back pay award was given by the CSC in a grievance proceeding, and not by a court, sovereign immunity does not apply.{\*\bkmkstart FN1}{\*\bkmkend FN1}[fn1] \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li1440\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin1440\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Fn1: Even if the doctrine of sovereign immunity applied in this situation, our holding would not change.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Guam government set up the CSC to resolve employment disputes occurring within other government agencies.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Even more revealing, as the court noted below, in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Public Health & Social Services v. Quinones}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (D. Guam App. Div. No. 86-0088A), the Guam Legislature appropriated over $100,000 to pay for the judgment rendered in that case against an employer by the CSC.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Given these two factors, the government has apparently given the CSC the power to issue backpay awards. \par \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at *2. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 4}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab We are persuaded by this discussion and hold that sovereign immunity does not apply to an award given by the CSC in a grievance proceeding before the CSC because such award is not rendered by a court.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93Sovereign immunity acts as a jurisdictional limit on the courts.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\i\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This case \'93does not concern the power of a court to assert jurisdiction over a sovereign.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 3.\tab Applicability of Government Claims Act \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 5}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Counsel for the Government would have us characterize this case as one for damages, not for injunctive relief, since this lawsuit ultimately seeks a payout.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We do not agree that the money represented in the Settlement is \'93damages\'94 as that term is defined at law.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Title 20 GCA \'a7 2201 (2005), entitled \'93Damages,\'94 states that the measure of damages under a contract claim is \'93 the amount which will compensate the party aggrieved for all the detriment proximately caused thereby, or which, in the ordinary course of things, would be likely to result therefrom.}{\lang2057\langfe1033\langnp2057\insrsid2189027\charrsid1048784 \'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Limtiaco\rquote s back pay is not meant }{\lang2057\langfe1033\langnp2057\insrsid14967325\charrsid1048784 to }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 compensate him for detriment proximately caused by the Government.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 It is money meant to compensate him for his employment.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, we cannot agree that Limtiaco\rquote s back pay presents a lawsuit for money damages against the Government of Guam such as to trigger an analysis of sovereign immunity as we would in a Government Claims Act case.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 6}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Counsel for the Government, in fact, would have the court find that the settlement that Limtiaco seeks to enforce is a contract, and for this reason alone, the Government Claims Act should apply.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We are not persuaded.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The wrongs addressed in the laws which created the CSC are not the same wrongs addressed in the Government Claims Act. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 7}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The CSC, its laws, and its rules, are authorized by the Organic Act of Guam, 48 U.S.C. \'a7 1422c, which sets forth the responsibilities of the executive branch of the Government of Guam. }{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 That section dictates that, \'93[t]he legislature shall establish a m erit system and, as far as practicable, appointments and promotions shall be made in accordance with such merit system. The Government of Guam may by law establish a Civil Service Commission to administer the merit system.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 48 U.S.C. \'a7 1422c(a) (Westlaw through P.L. 110-49, July 26, 2007).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The clear direction to provide due process rights to government employees arises out of a tradition of common law, starting with the United States Supreme Court case of}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Elrod v. Burns}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 427 U.S. 347 (1976).}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 That case provi des that generally, civil servants are entitled to classification status, but that those who occupy positions where policy is made \endash the policy of the elected official \endash are not extended such protection.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at 367-68.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 A merit system is generally set up to protect civil servants from the political winds of change in order to provide continuity, but there is a countervailing need to ensure that the elected official is able to carry out policy directives, and for this, the elected official is able to appoint employees at will, whose employment is not meant to be protected by a merit system.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 8}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Guam\rquote s merit system is most famously discussed in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Haeuser v. Department of Law}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 97 F.3d. 1152 (9th Cir. 1996), where the Ninth Circuit stated:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93Congress \rquote s command to the Guam legislature to set up a merit system for government employees is explicit:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 the legislature shall set up a merit system and, as far as practicable, appointments shall be made in accordance with such merit system.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid6046728\charrsid1048784 at 1156}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [3}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 9}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Government Claims Act, on the other hand, 5 GCA \'a7 6105 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 et seq.}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , exists by virtue of the Organic Act and Guam\rquote s inherent sovereign immunity.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Section 1421a of the Organic Act states: \par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The government of Guam shall have the powers set forth in this Act, shall have power to sue by such name, and, }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 with the consent of the legislature evidenced by enacted law, may be sued upon any contract entered into with respect to,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 or any tort committed incident to, }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 the exercise by the government of Guam of any of its lawful powers.}{\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 \'94}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 48 U.S.C. \'a7 1421a (Westlaw through P.L. 110-49, July 26, 2007) (emphasis added).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 See Pacific Rock II}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2001 Guam 21 \'b6}{\lang2057\langfe1033\langnp2057\insrsid14443317\charrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 19.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 There is no question that Guam possesses inherent sovereign immunity from suit without its consent pursuant to the Organic Act.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Marx v. Guam}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 866 F.2d 294, 298 (9th Cir. 1989); }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 see also Crain v. Gov\rquote t of Guam}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 195 F.2d 414, 417 (9th Cir. 1952).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government Claims Act was enacted by the Guam Legislature to reflect its consent to a waiver of immunity for expenses incurred in r eliance upon a contract to which the Government of Guam is a party, and torts arising from the negligent acts of its employees acting for and at the direction of the government of Guam.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 5 GCA \'a7\'a7 6105(a), (b)(2005). \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 40}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The directive in the Organic Act to set up a merit system was not meant to be frustrated by the additional requirements of compliance with the Government Claims Act.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The merit system provides rights and privileges which are not subject to the Government Claims Act, therefore, we hold that t he Government Claims Act is not applicable to administrative and judicial lawsuits involving the merit system.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\highlight7\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 [4}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 1}{\b\lang2057\langfe1033\langnp2057\insrsid3032239\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab We reach this conclusion for two reasons.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 First, the employment arrangement between Limtiaco and GFD was not a contract but a stipulation between the parties before an administrative tribunal, endorsed by the CSC as a settlement of a dispute properly before it.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 While some settlement agreements are deemed contracts for enforcement purposes, this cause of action arose under the Organic Act merit system when Limtiaco was hired by the competitive process.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This is not a contract that was procured in accordance with procurement principles.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 When the Government of Guam enters into employment contracts which are outside the merit system, such as those government positions that are hired under 4 GCA \'a7 4102(a) (enumerating the positions in the Government of Guam which are by law unclassified), these may well be contracts to which the Government Claims Act may apply.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This is a question we save for another day and is not the case before us.}{\cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{\fs20\insrsid13314286 Because unclassified jobs are not within the merit system as referenced in the Organic Act, these jobs may well be chara cterized as contracts, depending on the factual circumstances. Therefore, the holding made herein that the claims of classified employees do not fall under the Government Claims Act does not prevent us from concluding in a future case that an unclassifie d position is a contract to which the Government Claims Act may apply. The issue whether the Government Claims Act applies to contracts between the government and its non-classified contract employees, too, is not entertained in our ruling herein.}}}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The settlement of Limtiaco\rquote s case before the CSC is an acknowledgment of his rights as a classified employee protected by a merit system, as enforced by the CSC.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Because Limtiaco\rquote s rights were not formed by a contract, but by constitutional principles of due process, we find that the Government Claims Act does}{\lang2057\langfe1033\langnp2057\insrsid1048784 not apply to this Settlement. \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 2}{\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Second, merit system disputes in general, whether adverse actions or grievances, do not arise by contract.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In this case, the contract for employment of Limtiaco was reduced to a Settlement approved by the CSC, but even if it were not, it would still not be a \'93contract\'94 as that term is defined by Guam law.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam law defines \'93contract\'94 in two places. First, 18 GCA \'a7 85101 (2005) states, \'93 [a] contract is an agreement to do or not to do a certain thing.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Limtiaco\rquote s claim arises from a stipulated order of a tribunal arising from a due process right under the Organic Act, and for this reason the Settlement does not fit into the definition of a simple \'93agreement to do or not to do a certain thing.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam\rquote s procurement law also defines a contract and states:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93Contract means all types of territorial agreements, regardless of what they may be called, for the procurement or disposal of supplies, services or construction.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 5 GCA \'a7 5030(d)}{\lang2057\langfe1033\langnp2057\insrsid3821744\charrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (2005).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Neither of these definitions apply to the settlement agreement arising from the employment relationship between Limtiaco and the Government of Guam. \par }{\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 3}{\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Limtiaco is a classified employee, with due process rights as set forth by the United States Supreme Court in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Board of Regents of State Colleges v. Roth}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ,}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 408 U.S. 564 (1972) and its progeny.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 States uniformly hold that if employees are imbued with merit syste m status, the rights of the classified employee derive from due process, not from the contract of employment.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Conversely, in a Connecticut case of an at-will employee, it was acknowledged that the employee had no due process rights, only those of a contract worker.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Roche v. O\rquote Meara}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 175 F. Supp. 2d 276 (D. Conn. 2001).}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 For instance, \'93per diem employees are not entitled to the same protections as permanent employees}{\cs29\lang2057\langfe1033\langnp2057\insrsid16467882\charrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid12481207\charrsid1048784 .}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . . .}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 An employee has a property interest in his or her position only where he or she cannot be discharged in the absence of good cause}{ \cs29\lang2057\langfe1033\langnp2057\insrsid16467882\charrsid1048784 .\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at 263.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Said another way by another court, \'93 classified employees such as Plaintiffs enjoyed the {\*\bkmkstart SR_4968}{\*\bkmkend SR_4968}right to retain their positions absent dismissal for cause}{\cs29\lang2057\langfe1033\langnp2057\insrsid12481207\charrsid1048784 .}{ \cs29\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . . . [T]his {\*\bkmkstart SR_4986}{\*\bkmkend SR_4986}right was statutory, {\*\bkmkstart SR_4989} {\*\bkmkend SR_4989}not {\*\bkmkstart SR_4990}{\*\bkmkend SR_4990}contractual}{\cs29\lang2057\langfe1033\langnp2057\insrsid16467882\charrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 .}{ \cs29\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 .}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . .\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Conway v. Sorrell}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 894 F. Supp. 794, 801 (D. Vt. 1995).}{\cs29\lang2057\langfe1033\langnp2057\insrsid5182621 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Because a classified employee\rquote s rights to back wages, fair adjudication, merit hiring, and other rights, arise under the Organic Act mandate for a merit system, the Government Claims Act does not apply to Limtiaco\rquote s claim in this instance.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, it is immaterial that he did not make his claim pursuant to the Government Claims Act, or that he failed to timely appeal the denial of his initial Government Claim.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government Claims Act, if applicable, would require that Limtiaco appeal that denial within eighteen months following the denial, and Limtiaco did not do so.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Instead, Limtiaco filed a grievance}{\cs29\lang2057\langfe1033\langnp2057\insrsid12481207\charrsid1048784 appeal }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 with the CSC, pursuing his merit system rights.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 At the time that Limtiaco\rquote s case was proceeding through the CSC, it was not clear whether a claim by a classified employee for backpay fell within the Government Claims Act.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Consequently, we find it of no consequence that Limtiaco filed a government claim that was denied.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government Claims Act was never meant to apply to personnel issues that are pre-empted by the merit system, and so his filing of the }{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 government claim is irrelevant.}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Government further argues that the 27th Guam Legislature undertook to amend the Government Claims Act by prohibiting the payment of back wages from the Government Claims Fund.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, the 2004 amendment to 5 GCA }{\cs29\lang2057\langfe1033\langnp2057\insrsid3821744\charrsid1048784 \'a7 6402(d) does not support the G}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 overnment\rquote s position.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 As amended, section 6402(d) states: \'93Compensation for back wages shall come from the employee\rquote s agency\rquote s personnel budget and }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 not }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 from the Government Claims Fund.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 5 GCA \'a7 6402(d)}{ \cs29\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 (2005)}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 .}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government argues that this language was clear legislative intent that redress for back wages is an integral part of Government Claims Act.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, we note that the preamble for the amended }{\cs29\lang2057\langfe1033\langnp2057\insrsid3821744\charrsid1048784 section }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 6402(d) contains the following statements:}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784\charrsid1048784 \par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1048784 {\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 I Liheslaturan Gu\'e5han}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 finds that the current Government Claims Act does not properly address the needs of many claimants, as money from the Government Claims Fund (\'93Fund\'94 ) is quickly depleted for several reasons: despite Guam law that requir es a department or an agency to certify that funds are available to pay for a contract, contract claims are paid out from the Fund, sometimes costing more than the entire amount appropriated to the Fund; and compensation to a government employee for back wages are drawn off from the Fund, rather than from the agency\rquote s or department\rquote s personnel budget. \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 It is the intent of }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 I Liheslaturan Gu\'e5han}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 to ensure that money remains in the Fund for payments of claims that have no other}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 source of funding tort claims.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In addition, the rapid depletion of the Fund has also resulted in \'93bumping\'94 of claims by those who are fortunate enough to hire an attorney to obtain a }{ \cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 writ of mandamus}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , thereby giving their claims first priority. It is, therefore, the intent of }{ \cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 I Liheslaturan}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 to require payment of claims on a \'93first come, first served\'94 basis to give equity to all claimants. \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\cs29\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Pub. L. 27-142 (Dec. 30, 2004).}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This legislative preamble evidences a clear intent that the Government Claims Fund not be used to pay back wages.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We interpret }{ \cs29\lang2057\langfe1033\langnp2057\insrsid4993977\charrsid1048784 this }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 language as support for our holding that the Government}{ \cs29\lang2057\langfe1033\langnp2057\insrsid3821744\charrsid1048784 C}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 laims Act does not apply to classified employee grievances. \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 6}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Again, we face problematic language in the Appellate Division case of }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano v. Guam Civil Service Commission }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , No. CV-81-0052A, 1983 WL 30227 at *3 (Guam App. Div., June 20, 1983), where the following statement is made:}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 {\*\bkmkstart OLE_LINK1}{\*\bkmkstart OLE_LINK2}\'93We do realize, however, that the Civil Service Commission had no jurisdiction to award monetary compensation and salary to the A ppellant since such award can only be effectuated pursuant to the provisions of the Government Claims Act}{\cs29\lang2057\langfe1033\langnp2057\insrsid16139446\charrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 . }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . . .\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 {\*\bkmkend OLE_LINK1}{\*\bkmkend OLE_LINK2} }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In making this statement, the Appellate Division relied on no known authority, and we have found none. We believe that the statement of the Appellate Division in }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 that the CSC has no jurisdiction to award money damages and the Government Claims Act Applies}{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 is in error and it is rejected.\chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid11494785 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{\fs20\insrsid13314286 The Supreme Court of Guam has held that it will not deviate from {\*\bkmkstart SR_2199} {\*\bkmkend SR_2199}precedent of the Appellate Division of the District Court of Guam if it was well established in law and well reasoned, }{\i\fs20\insrsid13314286 Sumitomo Constr. Co. v. Zhong Ye Inc.,}{\fs20\insrsid13314286 1997 Guam 8 \'b6 6, or \'93unless reason supports such deviation.\'94 }{\i\fs20\insrsid13314286 People v. Quenga}{\fs20\insrsid13314286 , 1997 Guam 6 \'b6 13 n.4. We find the law does not support this statement of the Appellate Division in }{\i\fs20\insrsid13314286 Mariano}{ \fs20\insrsid13314286 , and there is sufficient reason supporting our deviation from it. }}}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We concur with the court which stated that, \'93state law may elect whether or not to provide a protected status, but once it has chosen to do so, the protections which apply are governed by the due process clause.\'94}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Minella v. City of San Antonio}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 368 F. Supp.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid16139446\charrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 2d 642, 650 (W.D. Tex. 2005) (citing }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Cleveland Bd. of Educ. v. Loudermill}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 470 U.S. 532, 541 (1985)).}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The right to protection as a classified employee derives from an Organic Act right, and once conferred, due process rights must accompany the relationship between public employee and public employer.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 } {\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This is not a contract case and the Government Claims Act therefore does not apply.\chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{ \fs20\expnd-1\expndtw-7\insrsid13314286\charrsid10171854 Again, we acknowledge that certain employment situations may be referred to as \'93contract\'94 }{\fs20\insrsid13314286 employment, but in the case of a classified employee, such a \'93contract\'94 carries with it much more than just the rights and duties laid out in the contract; they carry due process implications. \'93Certain contract situations, however, such as a \lquote public college professor dismissed from an office held under tenure provisions,\rquote or \lquote staff members dismissed during the terms of their contracts,\rquote have contractual rights creating \lquote an interest in continued employment that [is] safeguarded by due process.\rquote \'94}{\fs20\expnd-2\expndtw-10\insrsid13314286\charrsid10171854 }{\i\fs20\expnd-2\expndtw-10\insrsid13314286\charrsid10171854 Whiting v. Univ. of S. Miss}{ \fs20\expnd-2\expndtw-10\insrsid13314286\charrsid10171854 , 451 F.3d 339, 345 (5th Cir. 2006) }{\fs20\insrsid13314286 (alteration in original) (citation omitted). }}}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\cs29\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 C.\tab Statute of Limitations}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 7}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Having determined that the Government Claims Act does not apply, we need not address whether Limtiaco\rquote s claim is barred by the Government Claims Act statute of limitations, 5 GCA \'a7 6106. However, because counsel for the Governm ent claims that Limtiaco also exceeded the administrative claims statute of limitations set forth for grievance procedures under personnel law, we must address whether Limtiaco\rquote s claim came within the statute of limitations set forth in the merit system laws and regulations.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 [4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 8}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid5182621\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Government counsel refers to a time limit of fifteen days.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Chapter 12 of the Department of Administration Rules and Regulations (\'93DOA Rules\'94) is entitled \'93Grievance Procedures.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 DOA Rule 12.400 is entitled \'93General Provisions for Use of Grievance Procedures.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 DOA Rule 12.405, titled \'93Official Time for Presentation of Grievance,\'94 provides under subsection A that \'93 [a]n employee must be given a reasonable amount of official time to present his grievance if he is otherwise in an active duty status.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This \'93reasonable time\'94 provision applies to all st}{\cs29\lang2057\langfe1033\langnp2057\insrsid15278327 eps of the grievance procedure.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid11494785\charrsid1048784 [4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 9}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid11494785\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Rule 12.500, entitled \'93Informal Grievance Procedures,\'94 is the first step of the grievance procedure.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Rule 12.505B(1) provides that \'93an employee may present a grievance to his supervisor concerning a continuing practice or condition at any time.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Grievances concerning a particular act or occurrence, must be presented within 15 calendar days of that action or occurrence.\'94}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Rule 12.505B(2) provides that that supervisor must render a decision within ten calendar days of the presentation of the grievance.} {\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Most importantly, Rule 12.505C provides that an informal grievance can be presented \'93orally or in writing.\'94}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 DOA Rule 12.505C. \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid11494785\charrsid1048784 [}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 50}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid11494785\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Rule 12.600, entitled \'93Formal Grievance Procedures,\'94 is the next step.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 A prerequisite for pursuing a formal grievance procedure is that the employee must have pursued an informal grievance under section 12.500.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 DOA Rule 12.601.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Under Rule 12.601B(4), the formal grievance procedure must be initiated by the aggrieved within five days following the denial (or inaction by the supervisor) of the informal grievance.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The department head must act on the recommendation of the formal grievance committee within five days.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 DOA Rule 12.705H.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 1}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Rule 12.800, entitled \'93Grievance Review Board,\'94 is the next step.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 It requires the aggrieved employee to have gone through informal grievance procedures and formal grievance procedures.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Rule 12.801B(4) provides that the aggrieved must appeal to the Grievance Review Board within five days of the denial of his grievance, or the inactivity of the supervisor.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Review Board must act within ten days.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Finally, Rule 12.900, entitled \'93Appeal to the Civil Service Commission,\'94 is the last administrative step.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Again there is a five}{\cs29\lang2057\langfe1033\langnp2057\insrsid11425589\charrsid1048784 -}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 day limit.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Rule 12.901B(5), provides that the aggrieved must bring the matter to the CSC within five days following the denial (or inactivity) of the Grievance Review Board. \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 2}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The facts in this case indicate that Limtiaco was transferred on May 25, 1998, and that \'93 his first paycheck gave him an unpleasant surprise since it reduced his hourly wage from $12.96 to $8.48.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 RA, Tab 5 (}{ \cs29\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 Mem. P. & A. in Supp. of Pet. for Alternative Writ of Mandate}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , December 22, 2004)}{ \cs29\lang2057\langfe1033\langnp2057\insrsid5509031\charrsid1048784 .}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 If we take the first date of incorrect pay as the date from which to calculate his 15 days, Limtiaco should have complained to his supervisors within 15 days of receiving the wrong hourly wage.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Further, he would have a continuing duty to make an informal grievance each time he received a paycheck at the wrong hourly wage.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record contains no evidence whether Limtiaco filed a written grievance within 15 days, but the record does contain evidence that Limtiaco approached his supervisors at some time and \'93[p]revious GFD chiefs promised to correct this.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 RA, Tab 5 (}{ \cs29\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 Mem. P. & A. in Supp. of Pet. for Alternative Writ of Mandate}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , December 22, 2004)}{ \cs29\lang2057\langfe1033\langnp2057\insrsid5509031\charrsid1048784 .}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record remains uncontroverted that Limtiaco notified his supervisors as soon as he learned that his pay was not the amount contained in his transfer papers, though he does not say when.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Moreover, the chief of his new department promised to attend to the incorrect amount as soon as he could, finally putting that promise in writing on February 7, 2000.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record also contains }{\cs29\lang2057\langfe1033\langnp2057\insrsid2165185\charrsid1048784 evidence}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 that Limtiaco never acquiesced to the lower pay; he filed a government claim and continued to pursue it.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In addition, the record contains references that GFD continued to assure Limtiaco that his back pay would be honored. \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 3}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab From the record, it is apparent that Limtiaco\rquote s supervisors continually assured Limtiaco that his pay would be adjusted and the Government presented no evidence below to controvert this.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In other words, Limtiaco pursued informal grievance procedures \endash he approached his supervisors \endash and the informal grievance or grievances were resolved in Limtiaco\rquote s favor.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 There is no reason for Limtiaco to pursue formal (written) grievance procedures if informal grievance procedures were effective. \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 4}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The law instructs that the statute of limitations normally starts }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93either}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 when the course of conduct is brought to an end . . .}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 or}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 when the employee is on notice that further efforts to end the unlawful conduct will be in vain.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Richards v. CH2M Hill, Inc}{\cs29\i\lang2057\langfe1033\langnp2057\insrsid8022891\charrsid1048784 .}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 29 P.3d 175, 190 (Cal. 2001) (emphasis in original); }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 see also United States v. Reitmeyer}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 356 F.3d 1313, 1321-22 (10th Cir.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid15278327 2004).}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961 \par }{\cs29\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Again, we turn to the }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 case, 1983 WL 30227, which held that the aggrieved employee\rquote s delay in bringing action was forgiven because the continued promises by his employer to pay him induced lack of action on the aggrieved employee\rquote s part.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Relying on the case of }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Ex Parte Logan}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 205 S.W.2d 994, 996 (Tex. Crim. App. 1947), the Appellate Division held the estoppel constituted a \'93 continuing offense, which was not committed by any overt act, but by neglect and failure to act.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The . . . offense continued so long as the neglect c}{\cs29\lang2057\langfe1033\langnp2057\insrsid6632629\charrsid1048784 ontinued without excuse. . . . [T]}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 he grievance is the failure of the Government to pay the Appellant the wages due and the continuation of that failure.\'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 1983 WL 30227}{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at *2.}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In finding that the Government of Guam should be estopped from denying Mariano\rquote s claim because they induce d inaction on Mariano\rquote s part, the court stated, \'93 [t]o hold otherwise would be contrary to public policy and would require an employee to file a formal grievance with his employer fifteen (15) days from the date his check was due instead of informally attempting to resolve the problem with his superiors. \'94}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 . at *3. \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 6}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab An examination of the facts in this case indicate that though Limtiaco shows no written formal grievance within any 15-day deadline, and did not appeal the denial of his government claim wi thin 24 months, he received assurances throughout his employment that the }{\cs29\lang2057\langfe1033\langnp2057\insrsid11425589\charrsid1048784 G}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 overnment would give him his back pay.} {\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We rely on the law that a \'93continuing offense\'94 can toll the statute of limitations, }{ \cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 see}{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 }{\cs29\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Richards}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 29 P.3d at 190, and hold that under the specific facts of this case, Limtiaco\rquote s failure to prove that he met the deadlines set forth in the DOA Rules is irrelevant because the deadlines were tolled.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Moreover, as analyzed below, we find that the Government is estopped from raising this defense.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\cs29\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 D.\tab Estoppel}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\cs29\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [5}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 7}{\cs29\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The equities favor Limtiaco being allowed to go forward with his claim.}{\cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In fact, in its brief on appeal, GFD counsel states that GFD concedes that it had a duty to pay Limtiaco \'93until the Department acquired a legitimate excuse not to pay.\'94}{ \cs29\lang2057\langfe1033\langnp2057\insrsid1048784 }{\cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Appellant\rquote s Opening Brief}{\cs29\lang2057\langfe1033\langnp2057\insrsid6632629\charrsid1048784 ,}{ \cs29\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 p. 8 (Dec. 28, 2005).}{\cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s32\qj \li0\ri0\sa240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\cs28\super\insrsid13314286 \chftn }{\insrsid13314286 }{ \fs20\insrsid13314286 The argument made by GFD counsel is that the Department\rquote s neglect and failure to pay Limtiaco began on May 25, 1998, the date he became employed, and continued until the GFD had an excuse not to pay. GFD acquired a legitimate excuse not to pay Limtiaco on January 31, 2001, when the Government denied Limtiaco\rquote s claim. }}}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 If we allowed this, the Government could concede an obligation but delay paying}{ \lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 it until the Government \'93acquired a legitimate excuse not to pay,\'94 at which point, if the statute of limitations had expired,}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 the obligation would be excused.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This argument cannot stand.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [5}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 8}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab We adopted the same test for estoppel that the Appellate Division did in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 : \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid15278327 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam\rquote s equitable estoppel doctrine was adopted from the California Civil Procedure law (CCP \'a7 1962). Case law applying the doctrine has set forth four elements that must be proven in a}{\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 n equitable estoppel analysis: }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid15278327 {\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (1)}{\lang2057\langfe1033\langnp2057\insrsid618221\charrsid1048784 \tab }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 the party to be estopped must be apprised of the facts; \par (2)}{\lang2057\langfe1033\langnp2057\insrsid618221\charrsid1048784 \tab }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 he must intend that his conduct will be acted upon, or act in such a manner that the party asserting the estoppel could reasonably believe that he intended}{\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 his conduct to be acted upon; }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par (3)}{\lang2057\langfe1033\langnp2057\insrsid618221\charrsid1048784 \tab }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 the party asserting the estoppel must be ignorant of th}{ \lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 e true state of the facts; and }{\lang2057\langfe1033\langnp2057\insrsid6632629\charrsid1048784 \par }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (4)}{\lang2057\langfe1033\langnp2057\insrsid618221\charrsid1048784 \tab }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 he must rely }{ \lang2057\langfe1033\langnp2057\insrsid15278327 upon the conduct to his injury.}{\lang2057\langfe1033\langnp2057\insrsid10226705 \par }{\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mobil Oil Guam, Inc. v. Young Ha Lee}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2004 Guam 9 \'b6 24}{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (citations omitted).}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We hereby rely on these elements of estoppel in the present case, and analyze whether this doctrine should be used against GFD.}{ \lang2057\langfe1033\langnp2057\insrsid9916961 \par }{\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [5}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 9}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab First, was the GFD apprised of the facts?}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We conclude from the record that GFD was aware that Limtiaco was not being paid according to his GG-1 as early as February 7, 2000, when the Fire Chief wrote a memo acknowledging the disparity, and promising that Limtiaco would be paid retroactive to his date of hire into the new position.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GFD never contradicted their knowledge of the pay problem, and as late as November 13, 2003, GFD agreed that it owed Limtiaco back pay starting from his date of hire.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 This is confirmed in the settlement of June 24, 2004.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid3217258\charrsid1048784 The }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Fire Chief testified a}{\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 t}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 a February 2005 hearing that Limtiaco was owed the money.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, the first prong of estoppel is met. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 60}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The second inquiry is whether Limtiaco could have relied on the representations of GFD that he would be receiving his pay differential.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The record supports that Limtiaco could have reasonably relied on GFD\rquote s statements made over a five-year period. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 1}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Third, Limtiaco must show that he was ignorant of the true facts.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In fact, we believe that Limtiaco was powerless over any of the financial information of the Government of Guam that was preventing his agency from paying him.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 It was the Department of Law, not his employing }{\lang2057\langfe1033\langnp2057\insrsid14505800\charrsid1048784 agency, wh}{\lang2057\langfe1033\langnp2057\insrsid14580191\charrsid1048784 ich m}{\lang2057\langfe1033\langnp2057\insrsid14505800\charrsid1048784 ade the decision not to pay Limtiaco (beginning with the denial of his government claim) and has continued in that posture,}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ending in this appeal.}{\lang2057\langfe1033\langnp2057\insrsid9916961 \par }{\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 2}{\b\lang2057\langfe1033\langnp2057\insrsid11808574\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Finally, Limtiaco has relied to his detriment on GFD\rquote s statements.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 He could have filed this grievance in 2000 after the Fire Chief }{\lang2057\langfe1033\langnp2057\insrsid14505800\charrsid1048784 acknowledged}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 his debt but did not pay it, and he could have filed his grievance in 2003 when they promised him again. He could have pursued this writ of mandate any time in the prior five years.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We find that th}{\lang2057\langfe1033\langnp2057\insrsid15278327 e elements of estoppel are met.}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 3}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Thus}{\lang2057\langfe1033\langnp2057\insrsid1722508\charrsid1048784 ,}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 while we expressly reject the holding made in }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 that back pay awards are subject to the Government Claims Act, we adopt with approval the Appellate Division\rquote s use of estoppel against the Government.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , a police officer filed a grievance when he was inexplicably not paid for months.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 1983 WL 30227 at *1.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 He received the repeated assurances of his supervisor that his back pay would be honored, but payment was never made.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id.}{ \i\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The officer eventually filed a grievance with the CSC against his employer, the Department of Public Safety.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The CSC awarded $1,449.60 in back pay.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Department of Public Safety did not pay this, and sought a writ of review from the Superior Court.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The writ was eventually granted and the award annulled.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Appellate Division eventually reversed this case, holding that the Department of Public S afety should not be allowed to disregard prior promises.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at *2-3.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The decision rests on the basis of estoppel; the Government of Guam was estopped from not paying Mariano after telling him many times that they would pay him.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id. }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 at *2.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Appellate Division said, \'93[w]e are aware that extreme caution must be exercised in applying the doctrine of equitable estoppel against a sovereign,\'94 further noting, \'93 this is not to say that equitable defenses can always be used as a defense against sovereigns; a court must employ a balancing test to determine whether the injustice to the private party will far outweigh the public interest to be protected.\'94}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\i\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 4}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab We therefore invoke the doctrine of estoppel which was used with success in the }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 case.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GFD repre sentatives made no less than four promises to Limtiaco that he would be paid for the hours worked at the wage set forth in his hiring papers.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government should be estopped from luring Limtiaco into inaction, and then telling Limtiaco that his debt is too late or a prior year\rquote s obligation.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 case (as modified by this Opinion) supports such estoppel. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 E.\tab Rule of Four}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 5}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Government counsel argues a correct statement of law, that under 4 GCA }{\lang2057\langfe1033\langnp2057\insrsid3217258\charrsid1048784 \'a7 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 4402,}{\cs36\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \chftn {\footnote \pard\plain \s38\qj \li0\ri0\sa240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid13314286 \tab }{\super\insrsid13314286 \chftn }{\insrsid13314286 }{\fs20\insrsid13314286 The Rule of Four finds its basis in 4 GCA \'a7 4402 (2005): \par }\pard\plain \qj \fi-720\li1440\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin1440\itap0\pararsid10226705 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs20\insrsid13314286 \'a7 4402. }{\b\fs20\insrsid13314286 Quorum.}{\fs20\insrsid13314286 \par }\pard \qj \li1440\ri1440\sa240\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin1440\lin1440\itap0\pararsid618221 {\fs20\insrsid13314286 The quorum of the Commission shall be four (4) members. The affirmative vote of four (4) members shall be required for any action of the Commission. The Commission may adopt rules to govern its procedures and the standards to be maintained by non-attorney representatives; provided, that rules adopted by the Commission shall recognize that representative is not an attorney and cannot be bound by the same standards and ethics as an a ttorney; and, further, provided, that in cases where an employee represents oneself, the Commission shall render all possible assistance to the employee to insure a fair and impartial hearing.}}}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 and Appellate Division precedent, any action of the CSC requires the vote of four commissioners to be enforceable.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Pub. Health & Soc. Servs. v. Quinones}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , No. CV-86-0088A, 1987 WL 109892 at *2 (D. Guam App. Div. Aug. 27, 1987); }{ \i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Power Auth. v. Civil Serv. Comm\rquote n}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , Docket No. CV-90-0043A, 1991 WL 336909 (Guam App. Div. June 12, 1991).}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We have no quarrel with this proposition of law.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, Limtiaco\rquote s counsel notes correctly that the violation of the \'93Rule of Four\'94 was not raised below.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 As such, this court conducts a different review.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 6}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab As a general rule, this court will not address arguments raised for the first time on appeal. }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 See Dumaliang v. Silan}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2000 Guam 24 \'b6 12; }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Lizama v. Dep\rquote t of Pub. Works}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2005 Guam 12 \'b6 41.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Nonetheless, this court may recognize exceptions to this rule, such as \'93 (1) when review is necessary to prevent a miscarriage of justice or to preserve the integrity of the judicial process; (2) when a change in law raises a new issue while an appeal is pending; and (3) when the issue is}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 purely one of law.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Taniguchi-Ruth + Assoc. v. MDI Guam Corp.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2005 Guam 7 \'b6 80 (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Dumaliang v. Silan}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2000 Guam 24 \'b6 12 n.}{\lang2057\langfe1033\langnp2057\insrsid14580191\charrsid1048784 1}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ). \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 7}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The issue of whether the \'93Rule of Four\'94 was complied within this case is a factual issue and not an issue purely of law.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Limtiaco assures that there were four commissioners in agreement with the Settlement, but there is an insufficient factual basis before this court to determine whether this actually occurred.} {\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government also does not argue review is necessary to prevent a miscarriage of justice or to preserve the integrity of the judicial process.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, we decline to exercise our discretion to review this issue raised for the first time on appeal.}{\lang2057\langfe1033\highlight7\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 F.\tab Attorney General\rquote s signature}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 8}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Department of Law argues that the document that Limtiaco seeks to enforce is not valid unless it has the signature of the Attorney General and the Governor of Guam pursuant to 5 GCA \'a7 22601, entitled, \'93Execution of Contracts,\'94 which provides that \'93all contracts shall, after approval by the Attorney General, be submitted to the Governor for his signature.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 All contracts of whatever nature shall be executed upon the approval of the Governor.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 5 GCA \'a7 22601 (2005).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However , as we established herein in subpart B.2., Limtiaco\rquote s }{\lang2057\langfe1033\langnp2057\insrsid3217258\charrsid1048784 S}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 ettlement is not a contract in this specific instance.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 It is a binding promise arising from his status as a protected class of employees under the Organic Act.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Because we have held that the Settlement in issue is not a contract, 5 GCA \'a7 22601 does not apply. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 G.\tab Applicability of Guam Public Law 27-106 and Guam Public Law 27-107}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [6}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 9}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Counsel for GFD finally contends that Limtiaco\rquote s back pay debt is a prior year\rquote s obligation, and as such, the Guam Legis lature has passed legislation preventing the executive branch from using current year appropriations to pay prior year obligations.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Counsel for GFD cites the }{\lang2057\langfe1033\langnp2057\insrsid3217258\charrsid1048784 B}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 udget }{\lang2057\langfe1033\langnp2057\insrsid3217258\charrsid1048784 A}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 cts, Public Laws 27-106 and 27-107, where this restriction is contained.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Both budget laws contain the following preamble:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \'93 Except as otherwise provided in this Act, the appropriations made by this Act shall be available to pay for the obligations incurred on or after October 1, 2004, but }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 no later than}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 September 30, 2005.\'94}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Guam Pub. L. 27-106 }{ \lang2057\langfe1033\langnp2057\insrsid14696005\charrsid1048784 (Sept. 30, 2004) }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 and 27-107 (Oct. 1, 2004) (italics in original).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 70}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Limtiaco claims that his Settlement is not a prior year\rquote s obligation.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The following verbal exchange shows that the Fire Chief agrees that if the judge granted the writ, it would be transformed into a current year obligation: \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid15278327 {\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\trowd \irow0\irowband0\ts120\trgaph108\trleft720\trftsWidth1\trftsWidthB3\trftsWidthA3\trautofit1\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol\tblind828\tblindtype3 \clvertalt\clbrdrt \brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth3150\clshdrawnil \cellx3870\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth5598\clshdrawnil \cellx9468 \pard\plain \ql \li0\ri0\nowidctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\pararsid1048784\yts120 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 Q: [by the court]}{\lang2057\langfe1033\langnp2057\insrsid15278327 \cell }{\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 So if I give you a writ of mandate right now, it\rquote ll become a current year obligation, is that correct?}{ \lang2057\langfe1033\langnp2057\insrsid15278327 \cell }\pard\plain \ql \li0\ri0\widctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 { \lang2057\langfe1033\langnp2057\insrsid15278327 \trowd \irow0\irowband0 \ts120\trgaph108\trleft720\trftsWidth1\trftsWidthB3\trftsWidthA3\trautofit1\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol\tblind828\tblindtype3 \clvertalt\clbrdrt\brdrtbl \clbrdrl \brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth3150\clshdrawnil \cellx3870\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth5598\clshdrawnil \cellx9468\row }\pard\plain \ql \li0\ri0\nowidctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\pararsid1048784\yts120 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 A: [by Fire Chief Uncangco]}{\lang2057\langfe1033\langnp2057\insrsid15278327 \cell }{\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 Yes.}{\lang2057\langfe1033\langnp2057\insrsid15278327 }{ \lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 Yes Ma\rquote am.}{\lang2057\langfe1033\langnp2057\insrsid15278327 }{\lang2057\langfe1033\langnp2057\insrsid15278327\charrsid1048784 Yes Ma\rquote am.}{ \lang2057\langfe1033\langnp2057\insrsid15278327 \cell }\pard\plain \ql \li0\ri0\widctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 { \lang2057\langfe1033\langnp2057\insrsid15278327 \trowd \irow1\irowband1\lastrow \ts120\trgaph108\trleft720\trftsWidth1\trftsWidthB3\trftsWidthA3\trautofit1\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol\tblind828\tblindtype3 \clvertalt\clbrdrt\brdrtbl \clbrdrl \brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth3150\clshdrawnil \cellx3870\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth5598\clshdrawnil \cellx9468\row }\pard \ql \fi-2880\li3600\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin3600\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Tr.}{\lang2057\langfe1033\langnp2057\insrsid2363642\charrsid1048784 ,}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 p. 10 (}{\lang2057\langfe1033\langnp2057\insrsid14505800\charrsid1048784 Hr\rquote g}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 on Pet. for Writ of Mandate, Feb. 23, 2005).}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Even counsel for GFD at the Writ hearing conceded that if the writ were issued, Limtiaco \rquote s pay would be a current year obligation.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid15278327 \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [}{\b\lang2057\langfe1033\langnp2057\insrsid14580191\charrsid1048784 7}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 1}{ \b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab Despite the Government\rquote s agreement, we do not agree that this obligation can be made into a current year obligation by consensus.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The agreement of the Fire Chief at the hearing is immaterial to accounting principles that hold this to be an obligation of prior years.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 However, when the executive branch owes a past due obligation, and the judicial branch has properly ordered it paid, and the executive branch is constrained from doing so from its current year bud get, there is nothing to prevent the owing agency to seek the funds for this obligation from the Guam Legislature in the}{\lang2057\langfe1033\langnp2057\insrsid14696005\charrsid1048784 agency\rquote s}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 budget. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 H.\tab Res judicata}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [7}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 2}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab The Government finally argues that Limtiaco\rquote s claim is barred by res judicata in that the decision on Limtiaco\rquote s government claim is binding.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government argues that since Limtiaco did not appeal the denial of his government claim, that the adjudication of the government claim is \'93final\'94 for purposes of a final judgment.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 The Government cites }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 In re: Application of Leon Guerrero}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , 2001 Guam 22 \'b6 24 to argue that because there is a final judgment (denial of the government claim) on this identical issue, the matter was barred by res judicata, and the trial court should not have entertained the case. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [7}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 3}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab We have determined that the Government Claims Act does not apply to claims for back wages}{\lang2057\langfe1033\langnp2057\insrsid13773306\charrsid1048784 under these circumstances}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 .}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, the denial of Limtiaco\rquote s government claim was not a final judgment on the merits.}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Therefore, the argument that the case was barred by res judicata is rejected. \par }{\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10122977 {\b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 V.}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1048784 {\b\lang2057\langfe1033\langnp2057\insrsid15278327 \par }{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 [7}{\b\lang2057\langfe1033\langnp2057\insrsid10890954\charrsid1048784 4}{\b\lang2057\langfe1033\langnp2057\insrsid10226705\charrsid1048784 ]}{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 \tab In conclusion, we hold that:}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (1) }{ \lang2057\langfe1033\langnp2057\insrsid14696005\charrsid1048784 A}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 petition for a writ of mandamus was the appropriate way to seek enforcement of the agreement made before the CSC that GFD would calculate Limtiaco\rquote s back pay and generate the paperwork to effectuate payment of such back pay, because these are ministerial duties by nature; (2) Limtiaco exhausted his administrative remedies because he sought informal resolution of the matter, followed by a government claim (which we conclude to have been unnecessary), followed by a grievance procedure.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 He exhausted the administrative remedies available to him; (3) Sovereign immunity does not apply to this action because GFD\rquote s duties sought to be enforced are ministerial in nature; (4) The Government Claims Act does not apply to claims arising under the merit system, and we vacate this holding in }{\i\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 Mariano v. Guam Civil Service Commission}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 , No. CV-81-0052A, 1983 WL 30227 (D. Guam App. Div. June 20, 1983);}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 (5) Limtiaco did not fail to abide by the statute of limitations because GFD\rquote s offense in failing to pay him was continuing; and (6)}{\lang2057\langfe1033\langnp2057\insrsid1048784 }{ \lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 GFD is estopped from claiming that Limtiaco did}{\lang2057\langfe1033\langnp2057\insrsid14696005\charrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 not act with haste }{\lang2057\langfe1033\langnp2057\insrsid14696005\charrsid1048784 when GFD\rquote s representatives }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 themselves induced inactivity by their promises.}{ \lang2057\langfe1033\langnp2057\insrsid1048784 }{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 We find that the Government\rquote s other arguments do not change this result, and consequently, we }{ \b\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 AFFIRM}{\lang2057\langfe1033\langnp2057\insrsid9916961\charrsid1048784 .}{\lang2057\langfe1033\langnp2057\insrsid4399333\charrsid1048784 \par }}