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\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\insrsid6304907\charrsid721558 I}{\b\insrsid12922375\charrsid721558 N THE SUPREME COURT OF GUAM
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\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Plaintiff-Appellant,
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\b\lang2057\langfe1033\langnp2057\insrsid7427677 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 GUAM CIVIL SERVICE COMMISSION and ROBERT H. KONO,
\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Defendants-Appellees.
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\par Superior Court Case No.: CV0177-06
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\b\lang2057\langfe1033\langnp2057\insrsid7354263\charrsid721558 October 16, 2008
\par }{\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Cite as: 2008 Guam }{\b\lang2057\langfe1033\langnp2057\insrsid13446589\charrsid721558 16}{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 
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\par Argued and submitted on May 14, 2008
\par Hag\'e5t\'f1a, Guam
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\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 William Bischoff, }{\i\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Esq}{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 .
\par Assistant Attorney General 
\par Office of the Attorney General
\par 287 W O}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Brien Dr.
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a, GU 96910\cell }\pard\plain \ql \li0\ri0\nowidctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\pararsid721558 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\ul\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Appearing for Defendant-Appellee Perez:}{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 
\par David W. Hopkins, }{\i\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Esq.
\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Cabot Mantanona LLP}{\i\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 
\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Edge Bldg., Second Flr.
\par 929 S Marine Corps Dr.
\par Tamuning, GU 96913
\par 
\par }{\ul\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Appearing for Defendant-Appellee Kono
\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Frederick J. Horecky, }{\i\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 Esq}{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 .
\par Law Office of Horecky & Associates
\par 1st Flr., J. Perez Bldg.
\par 138 Seaton Blvd.
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\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 
\par }{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 BEFORE:}{\lang2057\langfe1033\langnp2057\insrsid9962436\charrsid721558  ROBERT J. TORRES}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 , Chief Justice; }{
\lang2057\langfe1033\langnp2057\insrsid9962436\charrsid721558 F. PHILIP CARBULLIDO}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 , }{\lang2057\langfe1033\langnp2057\insrsid9962436\charrsid721558 Associate }{
\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 Justice}{\lang2057\langfe1033\langnp2057\insrsid9962436\charrsid721558 ;}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid12015337\charrsid721558 KATHERINE A. MARAMAN}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 , }{\lang2057\langfe1033\langnp2057\insrsid12015337\charrsid721558 Associate }{
\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 Justice.
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\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 This appeal}{\lang2057\langfe1033\langnp2057\insrsid12980997\charrsid721558  arises out }{\lang2057\langfe1033\langnp2057\insrsid10700685\charrsid721558 of }{
\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 a complaint brought by}{\lang2057\langfe1033\langnp2057\insrsid12980997\charrsid721558  }{\field\flddirty{\*\fldinst {\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  SEQ CHAPTER 
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Plaintiff-Appellant Attorney General of Guam against Vernon Perez, in his official capacity as certifying officer for the Civil Service Commission}{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558  (\'93CSC\'94)}{
\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 , and Robert H. Kono, personally. The complaint challenged the authority by which the position of Administrative Counsel for the }{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 
CSC}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  was given classified status}{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 The complaint also}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 
 sought to have Kono repay the Government of Guam the salary and benefits paid to him since his employment as Administrative Counsel}{\lang2057\langfe1033\langnp2057\insrsid4290493\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid4290493\charrsid721558 Furthermore, Appellant}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  sought to enjoin Pere
z from certifying any further payments of salary and benefits to Kono.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 Perez moved for summary judgment, which Kono later joined.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 The Attorney General also moved for partial summary judgment}{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  The lower }{\lang2057\langfe1033\langnp2057\insrsid2519643\charrsid721558 court granted Perez and Kono}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid2519643\charrsid721558 s M}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 otion for }{\lang2057\langfe1033\langnp2057\insrsid2519643\charrsid721558 S}{
\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 ummary }{\lang2057\langfe1033\langnp2057\insrsid2519643\charrsid721558 J}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 udgment}{
\lang2057\langfe1033\langnp2057\insrsid10635924\charrsid721558 , which the}{\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558  Attorney General }{\lang2057\langfe1033\langnp2057\insrsid10635924\charrsid721558 now appeals}{
\lang2057\langfe1033\langnp2057\insrsid6372060\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid10635924\charrsid721558 For the reasons stated herein, we AFFIRM}{
\lang2057\langfe1033\langnp2057\insrsid2519643\charrsid721558  the Judgment}{\lang2057\langfe1033\langnp2057\insrsid10635924\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid6372060 
\par }{\lang2057\langfe1033\langnp2057\insrsid721558\charrsid721558 
\par }\pard \qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\insrsid9187013\charrsid721558 I.}{\b\insrsid10168237\charrsid721558  FACTUAL AND PROCEDURAL BACKGROUND}{\b\insrsid1248865\charrsid721558 

\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14097478\charrsid721558 [2]}{\lang2057\langfe1033\langnp2057\insrsid14097478\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 On September 9, 1982, the Board members (\'93Board
\'94) of the }{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 CSC}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  determined that five new }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 merit}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  positions \'93specifically for the classification of [CSC] technical/professional positions\'94 were justified, including the position of Administrative Counsel. Appell}{
\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 ant}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 s Excerpts of Record (\'93ER\'94)}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 at}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  14 (Mem}{
\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 , Sept. 9, 1982}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 ).}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The justification for these positions was that the CSC staff was \'93
engaged in providing technical review of requests submitted by the personnel agencies and the Governor for the Board}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
s adjudication\'94 and \'93provides recommendations/solutions to personnel management problems}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  . . ..}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \'94}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 Id}{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 T}{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 he memorandum from Ronald Aguon}{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558  (\'931982 Memorandum\'94)}{
\lang2057\langfe1033\langnp2057\insrsid10827076\charrsid721558 , }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 then the acting CSC Executive Director, to Governor Paul M. Calvo cites specifically to }{
\lang2057\langfe1033\langnp2057\insrsid10700685\charrsid721558 \'a7 }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 4107 of the }{\lang2057\langfe1033\langnp2057\insrsid10827076\charrsid721558 Guam }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Government Code, and requests that Governor}{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558  Calvo}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 approve the creation of these five new classified positions pursuant to this authority.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 Id.}{
\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  at }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 15.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
This section of the Government Code}{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 , which}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid4008397\charrsid721558 was}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  codified as 4 GCA \'a7 6303}{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 ,}{\cs16\lang2057\langfe1033\langnp2057\insrsid6892620\charrsid721558 \chftn {\footnote \pard\plain 
\s15\qj \li0\ri0\sa120\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 \chftn }{\insrsid3156963  }{
\insrsid3156963\charrsid8786126 Title 4 GCA \'a7 6303 was amended by Public Law 28-112:7 (April 14, 2006).  Any reference in this Opinion to this section refers to the 2005 version applicable at the time relevant to the underlying litigation.}}}{
\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558  gives the Governor the authority to create new positions \'93when necessary for the efficient performance of the duties and functions of the government.\'94}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 4 GCA \'a7 6303}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  (2005)}{
\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Governor Calvo }{\lang2057\langfe1033\langnp2057\insrsid4290493\charrsid721558 
signed}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  this memorandum on September 24, 1982, below the word \'93concurred.\'94}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 ER}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  at}{\lang2057\langfe1033\langnp2057\insrsid4008397\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 15}{\lang2057\langfe1033\langnp2057\insrsid10827076\charrsid721558  (1982 Mem.)}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid6557400 

\par }{\lang2057\langfe1033\langnp2057\insrsid14315420\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [3]}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab According to }{\lang2057\langfe1033\langnp2057\insrsid4290493\charrsid721558 its}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  position description}{\lang2057\langfe1033\langnp2057\insrsid4290493\charrsid721558 , the Administrative Counsel }{\lang2057\langfe1033\langnp2057\insrsid10700685\charrsid721558 
advises the CSC B}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 oard on administrative and legal matters.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
The Administrative Counsel serves as legal counsel, supervises the legal office, and handles all administrative legal matters for the CSC, a}{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 s well as other related duties.}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [4]}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab 
Effective December 28, 1982, Aguon became the first person to fill the newly-created position of Administrative Counsel, becoming a permanent classified employee after his six-month probationary period expired.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Aguon remained in this position as a classified employee until his retirement }{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 
approximately sixteen years later}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
Jerry Hogan was then hired as Administrative Counsel}{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 , first}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  on a temporary basis and then as permanent Administrative Counsel}
{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 In Hogan}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 
\rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s Notification of Personnel Action, he was denominated an \'93unclassified\'94 appointment.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Thereafter, Hogan presented, and the Board adopted, Resolution No. 99-005, finding that it is impracticable for the position of Administrative Counsel to be classified.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The resolution }{\lang2057\langfe1033\langnp2057\insrsid1648879\charrsid721558 cited}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  the following as reasons for thi
s determination: (1) it would be impracticable for the Administrative Counsel to appeal to the very commission that took adverse action against him or her, and (2) the Administrative Counsel must carry out the directions of the commission and thus}{
\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 ,}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  mus}{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 t serve at the Board}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 s pleasure}{\lang2057\langfe1033\langnp2057\insrsid8465274\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid16662861\charrsid721558 ER at 50-51 (CSC Resolution No. 99-005}{\lang2057\langfe1033\langnp2057\insrsid279905\charrsid721558 , }{
\lang2057\langfe1033\langnp2057\insrsid4668239\charrsid721558 Mar.}{\lang2057\langfe1033\langnp2057\insrsid279905\charrsid721558  2, 1999}{\lang2057\langfe1033\langnp2057\insrsid16662861\charrsid721558 ).}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [5]}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 After about four years on the job, }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Hogan resigned as Administrative Counsel.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 In the meantime}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , Guam Public Law 26-121 went int}{\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 o effect, amending 4 GCA \'a7 4403}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 (h) to indicate that the jurisdiction of the Civil Service Commission shall not extend }{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 to }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 persons in unclassified positions nor}{\lang2057\langfe1033\langnp2057\insrsid4290493\charrsid721558  shall its jurisdiction extend to the determination of}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  whether it is practicable to place a person in the classified service.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid1835188\charrsid721558 Gua
m Pub. L. 26-121 (}{\lang2057\langfe1033\langnp2057\insrsid10827076\charrsid721558 Aug. 15, 2002}{\lang2057\langfe1033\langnp2057\insrsid1835188\charrsid721558 ).}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 On November 3, 2002, Luis Baza, then the Executive Director of the CSC, presented Resolution No. 2003-002, which the Board adopted.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 This resolution repealed Resolution No. 99-005, pointing out that the authority cited in the prior resolution (4 GCA \'a7
 6303) was not applicable to the position of Administrative Counsel as that position was already created prior to }{\lang2057\langfe1033\langnp2057\insrsid10570357\charrsid721558 the adoption of Resolution No. 99-005}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , and thus was not a }{\i\lang2057\langfe1033\langnp2057\insrsid1648879\charrsid721558 new}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  position contemplated by 4 GCA \'a7
 6303.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Resolution No. 2003-002 placed the position}{\lang2057\langfe1033\langnp2057\insrsid7941997\charrsid721558  of Administrative Counsel}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  back into the classified service.}{\cs16\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \chftn {\footnote \pard\plain 
\s15\qj \li0\ri0\sa120\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 \chftn }{\insrsid3156963  }{
\insrsid3156963\charrsid12080585 Kono contends that neither of these resolutions had any effect on whether the Administrative Counsel position was in the classified service, as protections of the merit system cannot be taken away }{\insrsid3156963 
in such a fashion}{\insrsid3156963\charrsid12080585  in the first place.  Kono asserts that the position has been continuously classified from the time of its creation in 1982.  }{\insrsid3156963\charrsid8786126 Appellee}{\insrsid3156963  }{
\insrsid3156963\charrsid12080585 Kono}{\insrsid3156963 \rquote }{\insrsid3156963\charrsid12080585 s {\*\xmlopen\xmlns1{\factoidname place}}{\*\xmlopen\xmlns1{\factoidname country-region}}Br.{\*\xmlclose}{\*\xmlclose} }{\insrsid3156963 at}{
\insrsid3156963\charrsid12080585  10-1}{\insrsid3156963 3}{\insrsid3156963\charrsid12080585 .}{\insrsid3156963  This court, however, declines to reach this issue.  }{\i\insrsid3156963\charrsid487283 See}{\insrsid3156963  }{
\i\insrsid3156963\charrsid487283 infra}{\insrsid3156963 .}}}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [6]}{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 \tab Kono, }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
by lateral transfer, moved from his classified position with the Department of Law, where he served for eighteen years, into the position of CSC Administrative Counsel, receiving the same salary with the CSC as he }{
\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 did with the Department of Law.}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [7]}{\lang2057\langfe1033\langnp2057\insrsid8465274\charrsid721558 \tab On February 17}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
, 2006, the Attorney General filed the underlying complaint, alleging that }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 when}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  the CSC plac}{
\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 ed}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  the position of Administrative Counsel in the classified service}{
\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558  it}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  exceeded its authority.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The }{\lang2057\langfe1033\langnp2057\insrsid1648879\charrsid721558 Attorney General}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  brought the action as a claim }{
\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 in part }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 under 5 GCA \'a7 7103 (Enforcement of Proper Government Spending Act).}{\lang2057\langfe1033\langnp2057\insrsid721558  }
{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The }{\lang2057\langfe1033\langnp2057\insrsid1648879\charrsid721558 Attorney General}{\lang2057\langfe1033\langnp2057\insrsid15994460\charrsid721558 ,}{
\lang2057\langfe1033\langnp2057\insrsid1648879\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 citing to the wording of }{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 section}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  4107}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  of the Government Code}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  (}{
\lang2057\langfe1033\langnp2057\insrsid4008397\charrsid721558 codified as}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  4 GCA}{\lang2057\langfe1033\langnp2057\insrsid7941997\charrsid721558  \'a7 6303), claims that the 1982 M}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 emorandum purporting to create the five new positions, one of which was the position of Administrative Counsel, was ineffective because it was not addressed to the CSC fr
om the Governor, but rather vice versa, and further, that the Governor}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
s signature concurring in the CSC recommendations was similarly of no effect.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Moreover, the complaint alleges that the CSC}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s Resolution No. 2003-002 was }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 adopted}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  illegally or without authority, in light of Resolution No. 99-005 and Public Law 26-121.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The complaint sought to have Kono repay the Government of Guam the salary and benefits}{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558  he}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  received since his employment as Administrative Counsel, and sought to have Perez enjoined from certifying any further payments to Kono.}{
\cs16\lang2057\langfe1033\langnp2057\insrsid10507341\charrsid721558 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 
\fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 \chftn }{\insrsid3156963 
 Although the Attorney General argued in its briefs the argument that Kono should repay all salary and benefits received during his term as Administrative Counsel, the Attorney General abandoned this request at oral arg
ument, conceding that Kono is entitled to }{\i\insrsid3156963\charrsid5394697 quantum meruit}{\insrsid3156963 . }{\i\insrsid3156963\charrsid13922327 See}{\insrsid3156963  Digital Recording at 11:07-11:09 (Oral Argument, May 14, 2008).  }{
\i\insrsid3156963\charrsid15225175 See generally Tan}{\i\insrsid3156963 a}{\i\insrsid3156963\charrsid15225175 guchi-Ruth + Assoc}{\i\insrsid3156963 .}{\i\insrsid3156963\charrsid15225175  v. MDI Guam Corp.}{\insrsid3156963 , 2005 Guam 7.}}}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Perez and Kono 
answered the complaint, denying the allegations and claiming that the complaint is barred by the doctrines of estoppel and laches.
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [8]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
Perez filed a motion for summary judgment, which Kono joined.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The }{\lang2057\langfe1033\langnp2057\insrsid3744813\charrsid721558 
Attorney General }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 moved for partial summary judgment.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 T
he lower court granted Perez and Kono}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s motion for summary judgment}{
\lang2057\langfe1033\langnp2057\insrsid10507341\charrsid721558 , and final judgment was entered against the Attorney General.}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  The Attorney General }{
\lang2057\langfe1033\langnp2057\insrsid10507341\charrsid721558 now appeals}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 II.}{\b\lang2057\langfe1033\langnp2057\insrsid10168237\charrsid721558 
 JURISDICTION}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [9]}{\b\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 
This court has jurisdiction over an appeal from a final judgment of the Superior Court pursuant to 48 USC \'a7 1424-1(a)(2) (Westlaw }{\lang2057\langfe1033\langnp2057\insrsid5537598\charrsid721558 through Pub.}{
\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid5537598\charrsid721558 L.}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  No.}{
\lang2057\langfe1033\langnp2057\insrsid5537598\charrsid721558  110-120}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558  (2007));}{\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558  7 GCA \'a7\'a7 3107(b) and 3108}{
\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 (a) (2005).}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid12663864\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid12663864\charrsid721558 III}{\b\lang2057\langfe1033\langnp2057\insrsid10168237\charrsid721558 
. STANDARD OF REVIEW}{\b\lang2057\langfe1033\langnp2057\insrsid12663864\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [10]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 The trial court}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s grant of a motion for summary judgment is reviewed }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
de novo}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 . }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 {\*\bkmkstart wlCitedDoc}Wasson v. Berg}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
, 2007 Guam 16 \'b6 9}{\lang2057\langfe1033\langnp2057\insrsid8465274\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [11]}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab {\*\bkmkend wlCitedDoc}An agency}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s interpretation of a statute is reviewed }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 de novo}{\lang2057\langfe1033\langnp2057\insrsid8465274\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Ada v. Guam Tel}{\i\lang2057\langfe1033\langnp2057\insrsid12930909\charrsid721558 .}{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  Auth}{\i\lang2057\langfe1033\langnp2057\insrsid12930909\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 1999 Guam 10 \'b6 10. }{
\lang2057\langfe1033\langnp2057\insrsid15680498\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 IV.}{\b\lang2057\langfe1033\langnp2057\insrsid10168237\charrsid721558 
 DISCUSSION}{\lang2057\langfe1033\langnp2057\insrsid9187013\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 A. \tab Summary Judgment
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [12]}{\b\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14770463\charrsid721558 \'93}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Summary judgment is proper }{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \lquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
if the pleadings, depositions, answers to interrogatories, and admissions on file, together with the affidavits, if any, show that there is no genuine issue as to any material fact and that the moving party is entitled to a judgment as a matter of law.}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14770463\charrsid721558 \'94}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{
\cs24\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Hemlani v. Flaherty}{\cs24\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 2003 Guam 17 \'b6 7}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  (quoting }
{\field\fldedit{\*\fldinst }{\fldrslt {\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 ldinst    HYPERLINK "http://web2.westlaw.com/KeyCite/default.wl?rs=kmkh2.8&vr=2.0&kmvr=2.6&cite=GUSTSUPERCTRCPR56&kmDocName=GUSTSUPERCTRCPR56&His}}}
\sectd \psz1\sbknone\linex0\headery1440\footery432\titlepg\sectdefaultcl\sectrsid12922375\sftnbj {\cs24\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Guam R. Civ. P. 56(c)}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
). Any doubts should be resolved in favor of the non-moving party, and the movant}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
s evidence must be considered in the light most favorable to the non-moving party. }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 See, I}{\i\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 i}{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 zuka}{\i\lang2057\langfe1033\langnp2057\insrsid12930909\charrsid721558  Corp. v. Kawasho Int}{\i\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\i\lang2057\langfe1033\langnp2057\insrsid12930909\charrsid721558 l}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 1997 Guam 10 \'b6 21.
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [13]}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 A}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s the movants for summary judgment, }{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 Perez and Kono }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
were initially required to present }{\lang2057\langfe1033\langnp2057\insrsid15994460\charrsid721558 evidence}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  clearly establishing that there was no material factual dispute}{
\lang2057\langfe1033\langnp2057\insrsid10507341\charrsid721558  and they were entitled to judgment as a matter of law}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 As the defendants, Perez and Kono }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 do}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 not bear the burden of persuasion at t}{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 rial.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 Thus, as the moving parties}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , they may discharge their burden simply by showing the non-existence of an essential element of the non-moving party}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s case. }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 See Kim v. Hong}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 1997 Guam}{
\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558  11 \'b6 6.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 In this case, the non-moving party \endash }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  the plaintiff (}{\lang2057\langfe1033\langnp2057\insrsid6381254\charrsid721558 Attorney General}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 )}{
\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558  \endash }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  bear}{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 s}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  the burden of persuasion at trial, }{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558 and}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 must come forward with sufficient evidence that there is a genuine issue of fact that remains in dispute, and not simply rely on the allegations in the pleadings.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 See }{\i\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 Kim,}{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 1997 Guam 11 \'b6 7; }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Leer v. Murphy,}{\lang2057\langfe1033\langnp2057\insrsid1252865\charrsid721558  84}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 4 F.2d 628, 631 (9th Cir. 1988); 10A C. Wright, A. Miller, & M. Kane, Civil \'a7 2739.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 If the non-moving party fails in this regard, then summary judgment should be granted for the defendants. }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Kim, }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 1997 Guam 11 \'b6}{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 8;}{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  Boulware v. Parker,}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  457 F.2d 450}{\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 , 452}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  (3rd Cir. 1972); }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Dyer v. MacDougall}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 201 F.2d 265}{
\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 , 268}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  (2nd Cir. 1952).
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [14]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 In this case, the parties }{
\lang2057\langfe1033\langnp2057\insrsid15805957\charrsid721558 do not dispute the series of events that led to the Attorney General}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid15805957\charrsid721558 s complaint}{\lang2057\langfe1033\langnp2057\insrsid12930909\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid12930909\charrsid721558 
However, they d}{\lang2057\langfe1033\langnp2057\insrsid15805957\charrsid721558 isagree as to the }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 ultimate }{\lang2057\langfe1033\langnp2057\insrsid487283\charrsid721558 legal }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 question }{\lang2057\langfe1033\langnp2057\insrsid15805957\charrsid721558 of}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 whether or not the position of Administrative Counsel was }{\lang2057\langfe1033\langnp2057\insrsid15994460\charrsid721558 lawfully}{\lang2057\langfe1033\langnp2057\insrsid6381254\charrsid721558  created as a classified position and whether it was }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 properly in the classified service at the time Kono assumed the position. As the movants, Perez and Kono met their initial burden}{
\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  of showing that there are no material facts in dispute and that they are entitled to judgment as a matter of law.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 To this end,}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 they }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 present}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 ed}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 documents and declarations tending to show that the position is properly classified and that there is an absence of }{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 evidence in }{
\lang2057\langfe1033\langnp2057\insrsid10827076\charrsid721558 the }{\lang2057\langfe1033\langnp2057\insrsid1648879\charrsid721558 Attorney General}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid6381254\charrsid721558 s case \endash  namely, that the position was improperly given classified status without authority}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .}{
\cs16\lang2057\langfe1033\langnp2057\insrsid6381254\charrsid721558 \chftn {\footnote \pard\plain \qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 
\fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 \chftn }{\fs20\insrsid3156963\charrsid14097478  The lower court premised its Decision and Order largely on the failure of the Attorney G
eneral to present any facts tending to show that the legislature complied with the requirements set forth in }{\i\fs20\insrsid3156963\charrsid14097478 Haeuser v. Dep}{\i\fs20\insrsid3156963 \rquote }{\i\fs20\insrsid3156963\charrsid14097478 t of Law}{
\fs20\insrsid3156963\charrsid14097478 , 97 F.3d 1152 (9th Cir. 1996), which the lower court deemed an essential element of the Attorney General}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 s case. }{
\i\fs20\cf1\insrsid3156963\charrsid14097478 Haeuser }{\fs20\cf1\insrsid3156963\charrsid14097478 discusses the Guam Legislature}{\fs20\cf1\insrsid3156963 \rquote }{\fs20\cf1\insrsid3156963\charrsid14097478 
s mandate to make appointments in accordance with the merit system as far as practicable. 97 F.3d 1152, 1156 (9th Cir. 1996). }{\fs20\insrsid3156963\charrsid14097478 
In Guam, government employees are generally divided into classified and unclassified service. 4 GCA \'a7
 4102 (2005). The practical difference between the two classes of employees is that classified employees have the protections of the merit system and unclassified employees do not. }{\i\fs20\insrsid3156963\charrsid14097478 See, e.g.}{
\fs20\insrsid3156963\charrsid14097478 , 4 GCA \'a7 4106 (2005);  }{\i\fs20\insrsid3156963\charrsid14097478 see also Haeuser}{\fs20\insrsid3156963\charrsid14097478 , 97 F.3d at 1155.  However, for the reasons discussed }{
\i\fs20\insrsid3156963\charrsid14097478 infra}{\fs20\insrsid3156963\charrsid14097478 , this court does not reach the issue of the legislature}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 s compliance with }{
\i\fs20\insrsid3156963\charrsid14097478 Haeuser,}{\fs20\insrsid3156963\charrsid14097478  and affirms the lower court}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 s decision based on the Attorney General}{\fs20\insrsid3156963 
\rquote }{\fs20\insrsid3156963\charrsid14097478 s failure to produce any rebuttal evidence that the 1982 Memorandum
 did not validly create the classified position of Administrative Counsel separate and distinct from the unclassified position of legal counsel, as well as on this court}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 
s finding, based on a }{\i\fs20\insrsid3156963\charrsid14097478 de novo}{\fs20\insrsid3156963\charrsid14097478  review, that there was valid statutory authority for the creation of this position. }}}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid12859677\charrsid721558 The Attorney General contends in its briefs, as it did below, }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
that the position of CSC Administrative Counsel is really the same as the}{\lang2057\langfe1033\langnp2057\insrsid2516909\charrsid721558  unclassified}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  legal counsel position}{
\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558  authorized by 4 GCA \'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 (b)}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 , and also }{
\lang2057\langfe1033\langnp2057\insrsid12859677\charrsid721558 that Governor Calvo acted }{\lang2057\langfe1033\langnp2057\insrsid11353408\charrsid721558 without}{\lang2057\langfe1033\langnp2057\insrsid12859677\charrsid721558 
 authority when he purportedly created the }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 classified }{\lang2057\langfe1033\langnp2057\insrsid12859677\charrsid721558 position of Administrative Counsel for the CSC.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 As stated previously, the parties agree about what memorandum and resolutions were executed on different dates and by whom, as well
 as who occupied the position of Administrative Counsel at the various times between 1982 and the present.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 This court now }{
\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 turns to the argument of whether}{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 (1) }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 the two positions are really the same position, }{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 (2) }{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 
there was valid authority for Governor Calvo to create this position, and }{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 (3) }{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 
the manner in which the position was purportedly created was sufficient to satisfy the statute.}{\lang2057\langfe1033\langnp2057\insrsid4413578 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 1.}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  }{\b\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
The Administrative Counsel and the Legal Counsel positions are distinct.}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [15]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 The Attorney General argued that the Adminis
trative Counsel is the same as the legal counsel position specifically }{\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 referenced in 4 GCA \'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
(b), which states that the CSC shall employ its own legal counsel to serve at the pleasure of the CSC. The language \'93serve at the pleasure\'94 relates to 4 GCA \'a7 4102, which makes }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
unclassified}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  \'93all }{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 . . . }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
employment made, by law, to be at the pleasure of any board, commi}{\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 ssion or officer.\'94 4 GCA \'a7 4102}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 (a)(10)}{
\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558  (}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 2005}{\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 )}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 .}{\cs16\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 \chftn {\footnote \pard\plain 
\s15\qj \li0\ri0\sa120\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 \chftn }{\insrsid3156963  The Attorney General
 argued below and before this court that the position of Administrative Counsel cannot be classified because the nature of the relationship between the Administrative Counsel and the CSC suggests an attorney-client relationship thus implicating the client
 
discharge rule.  The Attorney General asserts that the client discharge rule is incorporated into Rule 1.16 of the Guam Rules of Professional Conduct (Declining or Terminating Representation), which states in relevant part that a lawyer shall not represen
t a client if the lawyer is discharged. The Attorney General argues that CSC\rquote 
s Administrative Counsel is different from other government attorneys in that this counsel forms an attorney-client relationship with the CSC, and thus the CSC should be free to di
scharge its counsel at will in conformance with the client discharge rule.  However, this argument was raised in the context of the }{\i\insrsid3156963\charrsid7407028 Haeuser}{\insrsid3156963  discussion and, because we decline to reach the }{
\i\insrsid3156963\charrsid9332131 Haeuser}{\insrsid3156963  issue, we will not address the nature of the relationship or whether this relationship implicates the client discharge rule.  }{\i\insrsid3156963\charrsid7407028 See}{\insrsid3156963  n.4}}}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 T}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
he Attorney General presented no evidence or specific facts at the summary judgment stage tending to show that these positions are not distinct}{\lang2057\langfe1033\langnp2057\insrsid15994460\charrsid721558 ,}{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  and }{\lang2057\langfe1033\langnp2057\insrsid15994460\charrsid721558 the Attorney General }{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 essentially abandoned this }{
\lang2057\langfe1033\langnp2057\insrsid7941997\charrsid721558 contention}{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  during oral argument before this court}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid3167388\charrsid721558 See}{\i\lang2057\langfe1033\langnp2057\insrsid13922327\charrsid721558 , e.g.,}{
\lang2057\langfe1033\langnp2057\insrsid3167388\charrsid721558  Digital Recording at 10:07-10:12 (Oral Argument, May 14, 2008).}{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  However, because this court}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 s review is }{\i\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 de novo}{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 , we nonetheless examine this premise.}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [16]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
Perez and Kono contend that the position of Administrative Counsel is a staff position with dual administrative and legal functions, and is not the \'93legal counsel\'94 referred to in }{\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 4 GCA 
\'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 (b).}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 They posit that the}{
\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558  Administrative Counsel}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  position was validly created by Governor Calvo through what }{
\lang2057\langfe1033\langnp2057\insrsid4008397\charrsid721558 became}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  4 GCA \'a7 6303 (discussed }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 infra}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 ), and }{\lang2057\langfe1033\langnp2057\insrsid15994460\charrsid721558 that }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
the authority of the CSC to employ an individual in this position comes not from the 4 GCA \'a7 4405(b) language pertaining to legal counsel, but from the language in t
hat same section stating that the CSC may employ its own staff. Thus, they argue, the Administrative Counsel is a staff position }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 distinct from}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  the legal counsel position. To this effect, Perez and Kono referenced the job description of this}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558  position, }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 which defines its duties as administrative and legal.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [17[}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Courts reviewing an agency}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s construction of a statute must reject those constructions that are contrary to clear legislative intent.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558 See}{\lang2057\langfe1033\langnp2057\insrsid9457031\charrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
Ada v. Guam Tel}{\i\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 .}{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  Auth}{\i\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid16318684\charrsid721558 , 1999}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  Guam 10 \'b6 10. However, reviewing courts may defer to the agency}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s interpretation if the statute is silent or ambiguous on a particular point.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Id}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 In this case, 4 GCA \'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 (b) does not specifically address the position of Administrative Counsel.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 The}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  legislative intent behind this statute }{
\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 is}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  to allow the CSC to appoint and maintain a staff.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 In this respect, to construe the Administrative Counsel as a staff position created by 4 GCA \'a7 6303}{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 \emdash and }{
\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 thus coming within the \'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 (b) language \'93may employ its own staff\'94}{
\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 \emdash would }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 not seem contrary to this intent.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Moreover, nothing else in the law expressly prohibits the creation of a separate Administrative Counsel position }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 distinct }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 from the legal counsel position specifically provided for by statute.
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [18]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 Further e}{
\lang2057\langfe1033\langnp2057\insrsid4475715\charrsid721558 vidence}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  submitted by Perez and Kono in support of this }{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 
contention}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  include the 1982 Memorandum wherein Governor Calvo }{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 approved the creation of}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  the new CSC staff position of Administrative Counsel, as well as declarations and personnel actions indicating that this 
position was recognized as classified from 1982 to the present (with a short exception during Hogan}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s term). }{
\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 In addition}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
, Perez and Kono presented evidence showing that Kono was properly hired as Administrative Counsel as a lateral transfer from the Department of Law, and that this position had been }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 
repeatedly }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 funded by }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 law}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  out of the CSC}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s personnel budget as a classified position.}{\i\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  See}{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 Appellee Kono}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 s }{\lang2057\langfe1033\langnp2057\insrsid6692267\charrsid721558 Excerpts}{\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558  of Record (\'93}{
\lang2057\langfe1033\langnp2057\insrsid279905\charrsid721558 Kono}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid279905\charrsid721558 s }{
\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 SER\'94) at 22-24 (}{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 Decl}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 . }{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 of Luis Baza}{\lang2057\langfe1033\langnp2057\insrsid279905\charrsid721558 , May 5, 2006}{\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 )}{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 ;}{\cs16\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 \chftn {\footnote \pard\plain \qj \li0\ri0\sa120\nowidctlpar
\tx0\tx720\tx1440\tx2160\tx2880\tx3600\tx4320\tx5040\tx5760\tx6480\tx7200\tx7920\tx8640\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid3371311 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 
\chftn }{\fs20\insrsid3156963\charrsid14097478  This declaration points out that Kono}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 
s lateral transfer from the Department of Law to the CSC Administrative Counsel position was in accordance with CSC merit system rules.  The position of Administrative Counsel was, at the time of Kono}{\fs20\insrsid3156963 \rquote }{
\fs20\insrsid3156963\charrsid14097478 s hire, included within the CSC}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 s personnel budget approved by the legislature in the annual appropriation act. }}}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 see also }{\i\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 id.}{
\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558  at 19-21 (}{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 Second Decl}{\lang2057\langfe1033\langnp2057\insrsid15628691\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558  of Juan Calvo}{\lang2057\langfe1033\langnp2057\insrsid8786126\charrsid721558 , M}{\lang2057\langfe1033\langnp2057\insrsid279905\charrsid721558 ay 14, 2006}{
\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 )}{\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 .}{\cs16\lang2057\langfe1033\langnp2057\insrsid11805511\charrsid721558 \chftn {\footnote \pard\plain 
\qj \li0\ri0\sa120\nowidctlpar\tx0\tx720\tx1440\tx2160\tx2880\tx3600\tx4320\tx5040\tx5760\tx6480\tx7200\tx7920\tx8640\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid3371311 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\cs16\super\insrsid3156963 \chftn }{\fs20\insrsid3156963\charrsid14097478  This declaration and its accompanying documents show that the position of Administrative Counsel was funded in the CSC}{\fs20\insrsid3156963 \rquote }{
\fs20\insrsid3156963\charrsid14097478 s personnel budget, which the legislature approved in the annual appropriation act in effect, at the time Hogan resigned and Kono was hired. }}}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [19]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid7030083\charrsid721558 
The Attorney General submitted no evidence below, apart from its own pleadings and arguments, that the two positions cannot }{\lang2057\langfe1033\langnp2057\insrsid7941997\charrsid721558 lawfully}{
\lang2057\langfe1033\langnp2057\insrsid7030083\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid4475715\charrsid721558 co-}{\lang2057\langfe1033\langnp2057\insrsid7030083\charrsid721558 
exist, or that they are in fact the same position such that its creation (or recreation) via the 1982 Memorandum was invalid. }{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 Further, based on this court}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 s }{\i\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 de novo}{
\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558  review of the underlying statutory authority, w}{\lang2057\langfe1033\langnp2057\insrsid7030083\charrsid721558 e find}{\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid7030083\charrsid721558 that nothing in the statutes prohibits}{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558  the Governor from creating such a staff position }{
\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 distinct}{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558  from the legal counsel position specifical}{\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 
ly provided for in 4 GCA \'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 (b).}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 We turn next to }{
\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 the }{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 1982 Memorandum itself, and examine whether it sufficed to create the position in question.}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid7030083\charrsid721558 2}{\b\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  }{
\b\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 The 1982 Memorandum signed by }{\b\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 Governor Calvo }{\b\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 
validly create}{\b\lang2057\langfe1033\langnp2057\insrsid4475715\charrsid721558 d}{\b\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558  the }{\b\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 position of Administrative Counsel.}
{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 
\par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid721558 {\ul\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [20]}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 \tab }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Title 4}{\lang2057\langfe1033\langnp2057\insrsid1835188\charrsid721558  GCA}{\lang2057\langfe1033\langnp2057\insrsid4008397\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid6892620\charrsid721558 \'a7 }{\lang2057\langfe1033\langnp2057\insrsid4008397\charrsid721558 6303}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 , }{
\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 previously}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid529066\charrsid721558 section}{
\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 4107 of the Government Code, provides the mechanism by which new government positions may be created. An agency}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s interpretation of }{\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 a }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 statute is a question of law reviewed }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 de novo}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 . }{
\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Ada}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 , 1999 Guam 10 \'b6 10. }{\lang2057\langfe1033\langnp2057\insrsid4475715\charrsid721558 \'93}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Review is limited to whether the agency}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
s conclusion is based on a permissible construction of the statute.\'94 }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Id.}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  (citations and quotation marks omitted).
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [21]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid472146\charrsid721558 Section 6303}{
\lang2057\langfe1033\langnp2057\insrsid6892620\charrsid721558  specifically allowed}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  the Governor to create new positions when necessary for the ef
ficient performance of the duties and functions of the government.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
In order to effect this, the Governor must submit the position description to the CSC within thirty days of creating the position.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
The CSC must then approve the creation of the position within ninety days after the Governor submits the description, otherwise the position shall terminate.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Id. }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Because we }{\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 have found}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  that nothing in the code prevents the establishment of separate positions of legal counsel and Administrative Counsel, we therefore find that the Administrative Counsel was a }{
\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 new}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  position }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 when}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  it was established in the 1982 Memorandum.
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [22]}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid4475715\charrsid721558 In}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  this memorandum, }{\lang2057\langfe1033\langnp2057\insrsid4475715\charrsid721558 the CSC }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 requested from Governor Calvo }{
\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 the creation of}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  five new CSC staff positions.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 The memorandum set forth the CSC}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s reaso
ns for requiring the additional positions.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 By signing the memorandum on September 24, 1982, }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Governor Calvo concurre}{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 d}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
 in the recommendation that these five positions be created. The CSC regarded this as a proper, statutorily-authorized means to create these new positions. The Attorney General challenges the validity of this memorandum based on the fact that it did not o
riginate from the Governor to the CSC, but rather, from the CSC to the Governor.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 This}{
\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 , however, is}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  an irrational extolling of form over substance.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [23]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 
As is clear on the face of the statute, the purpose is to allow for the creation of new positions when necessary for efficient government operations. }{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 The}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  CSC}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 s interpretation }{
\lang2057\langfe1033\langnp2057\insrsid2098153\charrsid721558 is not}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  impermissible or contrary to intent of the legislature.}{\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558  
}{\i\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558 See Ada}{\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558 , 1999 Guam 10 \'b6 10.}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 An }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 affected agency in need of new positions }{\lang2057\langfe1033\langnp2057\insrsid7024498\charrsid721558 may}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  have to somehow alert the Governor that there is such a need in order for the Governor to exercise his authority and create these positions.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 In this case, the}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  government entity in need of positions }{\lang2057\langfe1033\langnp2057\insrsid5519001\charrsid721558 
just happened to be}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  the same entity ultimately tasked with approving the creation of these posi}{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 tions.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 Had it been a government entity other than the CSC writing to the Governor requesting the creation of new positions for }{
\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 its}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  agency, and then the Governor seeking approval from the CSC for such, the Attorney General would likely not complain.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 That the CSC ex
pressed its own need for new positions to the Governor by initiating this memorandum should not undermine the validity of these positions or otherwise be deemed an }{\i\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 ultra vires}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  act on the part of Governor Calvo}{\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558  or }{\lang2057\langfe1033\langnp2057\insrsid472146\charrsid721558 Ronald }{
\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 Aguon, }{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 the }{\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 then-Executive Director of the CSC}{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 .
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [24]}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
Perez and Kono produced evidence below that the position of Administrative Counsel was created by Governor}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  Calvo}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 in 1982 as a classified position, with the }{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 incumbent}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  of that position serving in both the legal and t
he administrative realm for the CSC.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 See}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 Kono}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 s SER at 7-9 (}{
\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 Dep}{\lang2057\langfe1033\langnp2057\insrsid472146\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  of Luis Baza}{
\lang2057\langfe1033\langnp2057\insrsid8786126\charrsid721558 , April 6, 2006}{\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 )}{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 ;}{
\cs16\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558  \chftn {\footnote \pard\plain \qj \li0\ri0\sa120\widctlpar
\tx0\tx720\tx1440\tx2160\tx2880\tx3600\tx4320\tx5040\tx5760\tx6480\tx7200\tx7920\tx8640\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 
\chftn }{\fs20\insrsid3156963\charrsid14097478  The deposition of Baza, former Executive Director of the CSC, established that the Administrative Counsel position had always been in the classified service, 
and that the individual holding this position works not only for the Board, but for the Executive Director and the CSC staff. Further, Baza stated in his deposition the process by which the Governor may create new positions. }}}{
\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 s}{\i\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 ee also}{
\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 id.}{\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558  at 1-3 (}{
\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 First Decl}{\lang2057\langfe1033\langnp2057\insrsid9665576\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558  of Juan Calvo}{
\lang2057\langfe1033\langnp2057\insrsid8786126\charrsid721558 , }{\lang2057\langfe1033\langnp2057\insrsid4668239\charrsid721558 Mar.}{\lang2057\langfe1033\langnp2057\insrsid8786126\charrsid721558  28, 2006}{
\lang2057\langfe1033\langnp2057\insrsid15038432\charrsid721558 )}{\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 .}{\cs16\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 \chftn {\footnote \pard\plain 
\qj \li0\ri0\sa120\widctlpar\tx0\tx720\tx1440\tx2160\tx2880\tx3600\tx4320\tx5040\tx5760\tx6480\tx7200\tx7920\tx8640\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\cs16\super\insrsid3156963 \chftn }{\fs20\insrsid3156963\charrsid14097478 
 Through this declaration by the CSC Personnel Management Administrator, together with the accompanying documents, Perez and Kono presented evidence to support their argument that the Administrative Counsel is both an ad
ministrative and a legal position, and that it was validly created by Governor Calvo as a classified position through \'a7 4107 of the Government Code.  Moreover, Calvo}{\fs20\insrsid3156963 \rquote }{\fs20\insrsid3156963\charrsid14097478 
s declaration and supporting documents tend to establish that at the time Kono transferred from the Department of Law to the CSC, through 4 GCA \'a7 4114, the position of Administrative Counsel was properly in the classified service. }}}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558 We}{\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558  find that, as a matter of law, }{
\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 \'a7 4107}{\lang2057\langfe1033\langnp2057\insrsid472146\charrsid721558  of the Government Code}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558 , }{
\lang2057\langfe1033\langnp2057\insrsid6892620\charrsid721558 codified as}{\lang2057\langfe1033\langnp2057\insrsid14952460\charrsid721558  4 GCA \'a7 6303, serves as valid authority for Governor Calvo to have created the position of Ad}{
\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 ministrative Counsel}{\lang2057\langfe1033\langnp2057\insrsid12208073\charrsid721558  and that, by his signing of the 1982 Memorandum, Governor Calvo sufficiently executed this authority.}{
\lang2057\langfe1033\langnp2057\insrsid4413578\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 3.}{\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558  }{\b\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 The Attorney General failed to discharge it
s burden at the Summary Judgment proceedings.}{\b\lang2057\langfe1033\langnp2057\insrsid14777617\charrsid721558 
\par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid721558 {\lang2057\langfe1033\langnp2057\insrsid14097478\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [25]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{
\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 Through the declarations and other evidence submitted below, Perez and Kono met their}{\lang2057\langfe1033\langnp2057\insrsid7294812\charrsid721558  initial burden}{
\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558  as movants}{\lang2057\langfe1033\langnp2057\insrsid7294812\charrsid721558 , pointing out }{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 a lack of evidence}{
\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558  to support }{\lang2057\langfe1033\langnp2057\insrsid7294812\charrsid721558 the Attorney General}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 s case. T}{\lang2057\langfe1033\langnp2057\insrsid7294812\charrsid721558 he burden then shifted to the }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 Attorney General}{
\lang2057\langfe1033\langnp2057\insrsid7294812\charrsid721558  to produce evidence showing that Governor Calvo did not have the legal authority to create the CSC staff position of Administrative Counsel, and that the position of Administrative Cou
nsel is really the same position as the unclassified legal counsel already provided for by 4 GCA }{\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 \'a7 }{\lang2057\langfe1033\langnp2057\insrsid7294812\charrsid721558 4405(b).}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 The }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 Attorney General}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 s attempt to }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 rebut the movants}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558  evidence}{\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 
 below came solely by way of argument and speculation \endash  hypothesizing that Governor Calvo may have perhaps been tricked or duped into signing this memorandum without really knowing what he was doing.}{\lang2057\langfe1033\langnp2057\insrsid721558  
}{\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 Nothing in the record suggests that this was the case.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 
The Attorney General did not present any evidence}{\lang2057\langfe1033\langnp2057\insrsid10517049\charrsid721558  to this effect}{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 , such as a }{
\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 declaration by Governor Calvo that he was in fact tricked}{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558 N}{\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 o supporting documentation of any kind}{\lang2057\langfe1033\langnp2057\insrsid1342300\charrsid721558  was presented}{
\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 . Nor did the Attorney General make any assurances to the lower court that it had any reason to believe that this was true.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 It would be an understatement to say that th}{\lang2057\langfe1033\langnp2057\insrsid10959676\charrsid721558 is argument falls short of the }{
\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 specific facts}{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558  and legal standards}{\lang2057\langfe1033\langnp2057\insrsid3407967\charrsid721558 
 that the Attorney General was required to present on this point.}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [26]}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 \tab The U}{\lang2057\langfe1033\langnp2057\insrsid472146\charrsid721558 nited States}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  Supreme Court, in addressing the requirements of Rule 56(c) of the Federal Rules of Civil Procedure, which Guam}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s statute mirrors, stated:
\par }\pard \ql \li720\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid721558 {\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 In our view, the plain language of Rule 56(c)
 mandates the entry of summary judgment, after adequate time for discovery and upon motion, against a party who fails to make a showing sufficient to establish the existence of an element essential to that party}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s case, and on which that party will bear the burden of proof at trial. In such a situation,{\*\bkmkstart sp_780_323}
{\*\bkmkstart SDU_323}{\*\bkmkend sp_780_323}{\*\bkmkend SDU_323} }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 {\*\bkmkstart citeas((Cite_as:_477_U.S._317,_*323,_106}{\*\bkmkend citeas((Cite_as:_477_U.S._317,_*323,_106}there can be }{
\i\lang2057\langfe1033\langnp2057\insrsid721558 "}{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 no genuine issue as to any material fact,}{\i\lang2057\langfe1033\langnp2057\insrsid721558 "}{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  since a complete failure of proof concerning an essential element of the nonmoving party}{\i\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s case necessarily renders all other facts immaterial}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 . The moving party is }{\lang2057\langfe1033\langnp2057\insrsid721558 "}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 entitled to a judgment as a matter of law}{\lang2057\langfe1033\langnp2057\insrsid721558 "}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 because the nonmoving party has failed to make a sufficient showing on an essential element of her case with respect to which she has the burden of proof.}{\lang2057\langfe1033\langnp2057\insrsid9575797\charrsid721558 
\par }{\lang2057\langfe1033\langnp2057\insrsid9255543\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Celotex Corp. v. Catrett}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 477 U.S.}{\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558  317, 322-}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 23 (1986)}{
\lang2057\langfe1033\langnp2057\insrsid9332131\charrsid721558  (emphasis added)}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [27]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 Perez and Kono made an initial showing
 through competent evidence that the Administrative Counsel position was validly created as a classified}{\lang2057\langfe1033\langnp2057\insrsid9332131\charrsid721558  position}{\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 
, and that it remained classified at the time Kono assumed the position. While the court must view the evidence and draw inferences in the light most favorable to the Attorney General, }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 
the Attorney General must still produce }{\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 some rebuttal evidence.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 See I}{
\i\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 i}{\i\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 zuka}{\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 , 1997 Guam 10 \'b6 21.
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [28]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 Showing that }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 the }{\lang2057\langfe1033\langnp2057\insrsid7305482\charrsid721558 lack of authority for Governor Calvo to create the}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 
 CSC Administrative Counsel position }{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 distinct}{\lang2057\langfe1033\langnp2057\insrsid7305482\charrsid721558  from the legal counsel position}{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  is essential }{\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 to}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  the }{
\lang2057\langfe1033\langnp2057\insrsid10517049\charrsid721558 Attorney General}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 s claim}{
\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 . Once Perez and Kono discharged their burden, the Attorney General was required to produce evidence}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  demons}{
\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558 trating that Governor Calvo acted }{\i\lang2057\langfe1033\langnp2057\insrsid9332131\charrsid721558 ultra vires}{\lang2057\langfe1033\langnp2057\insrsid9332131\charrsid721558  of his}{
\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558  authority}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  and that this }{\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558 
position was really the legal counsel position already created by statute as unclassified}{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 See Kim}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 , 1997 Guam 11 \'b6\'b6 6-7. }{\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 The Attorney General }{
\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 wholly failed in this regard}{\lang2057\langfe1033\langnp2057\insrsid4156186\charrsid721558 .}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [29]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 
It is settled law that, in a summary judgment proceeding, t}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 he non-moving party may not }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 merely }{
\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 rely on unsupported or conclusory allegations contained in the pleadings, but must present some significant probative evidence tending to support the assertions.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558 Anderson v. Liberty Lobby, Inc.,}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  477 U.S. 242, 249 (1986).}{
\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558  Here, the Attorney General simply presented to the lower court its own arguments and allegations, with no significant probative evidence to support these allegations.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558 See I}{\i\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 i}{\i\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558 zuka
}{\lang2057\langfe1033\langnp2057\insrsid7487586\charrsid721558 , 1997 Guam 10 \'b6 8. These are, without more, insufficient to stave off a grant of summary judgment for Perez and Kono.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 S}{\lang2057\langfe1033\langnp2057\insrsid14568781\charrsid721558 ummary }{\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558 j}{
\lang2057\langfe1033\langnp2057\insrsid14568781\charrsid721558 udgment}{\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558 , therefore,}{\lang2057\langfe1033\langnp2057\insrsid14568781\charrsid721558  was }{
\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 properly}{\lang2057\langfe1033\langnp2057\insrsid14568781\charrsid721558  granted.}{\lang2057\langfe1033\langnp2057\insrsid6557400\charrsid721558  }{
\lang2057\langfe1033\langnp2057\insrsid8786126\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid16130536 {\b\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 B}{\b\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 . \tab }{
\b\lang2057\langfe1033\langnp2057\insrsid9575797\charrsid721558 CSC }{\b\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 Resolution No. 99-005}{\b\lang2057\langfe1033\langnp2057\insrsid9575797\charrsid721558  and}{
\b\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  }{\b\lang2057\langfe1033\langnp2057\insrsid9575797\charrsid721558 CSC }{\b\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 Resolution No. 2003-002
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [30]}{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 \tab The A}{\lang2057\langfe1033\langnp2057\insrsid1080520\charrsid721558 ttorney General}{
\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  also contends that the CSC}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 
s passage of Resolution No. 99-005 effectively removed the position of Administrative Counsel from the classified service and}{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558  placed it}{
\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  into the unclassified service.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 
Perez and Kono argue that the act of summarily removing a position from the classified service in such a fashion would itself be a violation of the merit system. The court}{\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 , however,}{
\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  need not reach the issue of whether the CSC may alter the classification status of a government position i}{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 n}{
\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  such a }{\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 manner}{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 , as }{
\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 this}{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  determination would be of no consequence to the outcome of th}{
\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 e}{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  case.}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 
This is so because}{\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 ,}{\lang2057\langfe1033\langnp2057\insrsid13396229\charrsid721558  even}{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558  if the }{
\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 CSC}{\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid14497572\charrsid721558 s }{
\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 enabling authority }{\lang2057\langfe1033\langnp2057\insrsid13396229\charrsid721558 (4 GCA \'a7 4403) }{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 
would allow the CSC to make such determinations, this }{\lang2057\langfe1033\langnp2057\insrsid9201010\charrsid721558 power }{\lang2057\langfe1033\langnp2057\insrsid1274944\charrsid721558 
should apply equally to the 1999 resolution (making the Administrative Counsel position unclassified) and to the 2002 resolution (placing it back in the classified service).}{\cs16\lang2057\langfe1033\langnp2057\insrsid13396229\charrsid721558 \chftn 
{\footnote \pard\plain \qj \li0\ri0\sa120\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid6304907 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\cs16\super\insrsid3156963 \chftn }{
\fs20\insrsid3156963\charrsid14097478  The Attorney General also argues that the passage of Resolution No. 2003-002 was illegal or unauthorized because it was passed after, and in contravention of Pub
lic Law 26-121. However, a review of the legislative history suggests that the restriction of jurisdiction pronounced in the public law was not some new restriction that the legislature was placing on the CSC.  Rather, it was a clarification to the CSC th
at its jurisdiction never extended to those persons not in the classified service. }{\i\fs20\insrsid3156963\charrsid14097478 See}{\fs20\insrsid3156963\charrsid14097478 
 Guam Pub. L. 26-121 (Aug. 15, 2002) (Legislative Findings and Intent). The language added by Public Law 26-121, therefore, seems merely to be surplusage, not enlarging or taking away any power or authority that the CSC had before its passage.}}}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid13389028\charrsid721558 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid13389028\charrsid721558 V.}{\b\lang2057\langfe1033\langnp2057\insrsid10168237\charrsid721558 
 CONCLUSION}{\b\lang2057\langfe1033\langnp2057\insrsid13389028\charrsid721558 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid721558 {\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [31]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid5519001\charrsid721558 The}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  lower court did not err in granting summary judgment in favor of Perez and Kono, as the Attorney General failed to present any rebuttal evidence supportive of its claims.}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid15680498\charrsid721558 In particular}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 
, the Attorney General presented no specific facts tending to show that the positions of Administrative Counsel and legal counsel are in fact the same position, }{\lang2057\langfe1033\langnp2057\insrsid15213954\charrsid721558 or}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  that the 1982 Memorandum did not validly create a classified Administrative Counsel staff position. We find }{\lang2057\langfe1033\langnp2057\insrsid4546947\charrsid721558 as a matter of law }
{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 that}{\lang2057\langfe1033\langnp2057\insrsid4546947\charrsid721558 
 nothing in the statutes prohibits the creation of a classified Administrative Counsel position separate from the unclassified legal counsel positi}{\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 on provided for in 4 GCA \'a7 4405}{
\lang2057\langfe1033\langnp2057\insrsid4546947\charrsid721558 (b).}{\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid4546947\charrsid721558 We further find that}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  the 1982 Memorandum signed by Governor Calvo was sufficient to validly create the position of Administrative Counsel}{\lang2057\langfe1033\langnp2057\insrsid2557787\charrsid721558 
 within the classified service}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 , pursuant to the authority set forth in \'a7 4107 of the Government Code, }{\lang2057\langfe1033\langnp2057\insrsid6892620\charrsid721558 codified as}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  4 GCA \'a7 6303}{\lang2057\langfe1033\langnp2057\insrsid15680498\charrsid721558 , and that Governor Calvo did not therefore act without authority}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 . 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [32]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid12912790\charrsid721558 As a result, t}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 h}{\lang2057\langfe1033\langnp2057\insrsid6967049\charrsid721558 e}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  court need not reach the issues of estoppel and laches}{
\lang2057\langfe1033\langnp2057\insrsid11731098\charrsid721558  raised by Perez and Kono}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 , nor }{\lang2057\langfe1033\langnp2057\insrsid9323564\charrsid721558 do we reach the issue of}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  whether the}{\lang2057\langfe1033\langnp2057\insrsid6967049\charrsid721558  classification status of the legal c}{\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 
ounsel position in 4 GCA \'a7 4405}{\lang2057\langfe1033\langnp2057\insrsid6967049\charrsid721558 (b) satisfies the}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  requirements set forth in }{
\i\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 Haeuser v. Dep}{\i\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\i\lang2057\langfe1033\langnp2057\insrsid3164744\charrsid721558 t}{
\i\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  of La}{\i\lang2057\langfe1033\langnp2057\insrsid7958073\charrsid721558 w, }{\lang2057\langfe1033\langnp2057\insrsid7958073\charrsid721558 97 F.3d 1152 (9th Cir. 1996).}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\i\lang2057\langfe1033\langnp2057\insrsid7958073\charrsid721558 See}{\lang2057\langfe1033\langnp2057\insrsid7958073\charrsid721558  n.4.}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 

\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 [33]}{\lang2057\langfe1033\langnp2057\insrsid6304907\charrsid721558 \tab }{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 Accordingly, the lower court}{
\lang2057\langfe1033\langnp2057\insrsid10441963\charrsid721558 \rquote }{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 s decision granting }{\lang2057\langfe1033\langnp2057\insrsid1736550\charrsid721558 Perez and Kono\rquote s}{
\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558  Motion for Summary Judgment is hereby }{\b\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 AFFIRMED}{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 .}{
\lang2057\langfe1033\langnp2057\insrsid721558  }{\lang2057\langfe1033\langnp2057\insrsid2520720\charrsid721558 
\par }{\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid721558 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid9311009\charrsid14315420 F. PHILIP CARBULLIDO}{
\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid14315420 
\par Associate Justice
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid8460671 {\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid14315420 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid14315420\charrsid14315420 KATHERINE A. MARAMAN}{
\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid14315420 
\par }{\b\lang2057\langfe1033\langnp2057\insrsid14315420\charrsid14315420 Associate Justice}{\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid14315420 
\par }\pard \ql \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid8460671 {\b\lang2057\langfe1033\langnp2057\insrsid14315420\charrsid14315420 
\par }\pard \qc \li0\ri0\nowidctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14315420 {\b\lang2057\langfe1033\langnp2057\insrsid12922375\charrsid14315420 ROBERT J. TORRES
\par Chief Justice}{\b\lang2057\langfe1033\langnp2057\insrsid13389028\charrsid14315420 
\par }}