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CHARGUALAF, \par ANGELO M. GOMBAR, ANTHONY DUENAS LEON GUERRERO, \par LAWRENCE C. PORTELA, TONY A. QUINATA, \par and FRANKLIN M. TAITAGUE,}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par Plaintiffs-Appellants, \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 v.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 DEPARTMENT OF PUBLIC WORKS, LAWRENCE P. PEREZ, \par in his capacity as Director of the Department of Public Works, \par GUAM ENVIRONMENTAL PROTECTION AGENCY, \par LORILEE T. CRISOTOMO, in her capacity as Administrator of \par the Guam Environmental Protection Agency, GEORGE LAI, \par ALFRED K.Y. LAM, ROBERT A. PERRON, ANDREW CHUNG PARK, \par FLORIDA SANCHEZ, THOMAS N. POOLE, JORGE O. NELSON, \par RON YOUNG, DOES I-X,}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par Defendants-Appellees. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Supreme Court Case No. CVA05-017 \par Superior Court Case No. CV0892-04 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 OPINION}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid12468249\charrsid1988354 Filed:}{\b\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \b\lang2057\langfe1033\langnp2057\insrsid12468249\charrsid1988354 February 20, 2008 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Cite as: 2008 Guam }{\b\lang2057\langfe1033\langnp2057\insrsid10036522\charrsid1988354 3}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appeal from the Superior Court of Guam \par Argued and submitted on August 8, 2006 \par Hag\'e5t\'f1a, Guam \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid12468249\charrsid1988354 \par }\trowd \irow0\irowband0\lastrow \ts11\trgaph108\trleft0\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl108\trpaddr108\trpaddfl3\trpaddfr3\tblind108\tblindtype3 \clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clpadt108\clpadr108\clpadft3\clpadfr3\clshdrawnil \cellx4680\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clpadt108\clpadr108\clpadft3\clpadfr3\clshdrawnil \cellx9360\pard \ql \li0\ri0\nowidctlpar\intbl\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\pararsid1911749 { \ul\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appearing for Plaintiffs-Appellant:}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par Cesar C. Cabot, }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Esq.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par Cabot Mantanona, LLP \par BankPacific Bldg. Second Floor}{\lang2057\langfe1033\langnp2057\insrsid12468249\charrsid1988354 \par }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 825 South Marine Corps. Dr. \par Tamuning, GU 96913 \par \cell }{\ul\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appearing for Defendants-Appellee:}{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Phillip D. Isaac, }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Esq. \par }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Assistant Attorney General \par Office of the Attorney General \par Civil Division \par 287 W. O\rquote Brien Dr. \par Hag\'e5t\'f1a, GU 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \trowd \irow0\irowband0\lastrow \ts11\trgaph108\trleft0\trftsWidth1\trftsWidthB3\trftsWidthA3\trpaddl108\trpaddr108\trpaddfl3\trpaddfr3\tblind108\tblindtype3 \clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clpadt108\clpadr108\clpadft3\clpadfr3\clshdrawnil \cellx4680\clvertalt\clbrdrt\brdrnone \clbrdrl\brdrnone \clbrdrb\brdrnone \clbrdrr\brdrnone \cltxlrtb\clftsWidth3\clwWidth4680\clpadt108\clpadr108\clpadft3\clpadfr3\clshdrawnil \cellx9360\row }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 { \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par BEFORE:}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 F. PHILIP CARBULLIDO, Chief Justice; ROBERT J. TORRES, Associate Justice; FRANCES M. TYDINGCO-GATEWOOD, Associate Justice.}{ \cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 After the three Justices heard oral argument in this matter, but prior to the issuance of this opinion, Justice Robert J. Torres was sworn in as Chief Justice, Justice F. Philip Carbullido assumed the role of Associate Justice, and Justice Frances Tydin go-Gatewood was sworn in as Chief Judge of the District Court of Guam.}}}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 CARBULLIDO, C.J.:}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [1]}{\lang2057\langfe1033\langnp2057\insrsid1911749 \tab }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 This case involves a dispute over the exclusion of Guatali and Malaa as potential sites for Guam\rquote s new solid waste landfill.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Plaintiffs-Appellants are taxpaying citizens (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Taxpayers}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) who argue that the landfill should be located at either Guatali or Malaa as the legislature had previously indicated, and not at the Dandan site that has been chosen.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Defendants-Appellees are the Department of Public Works (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 DPW}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) and the Guam Environmental Protection Agency (}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 GEPA}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) and their employees and board members who were involved in selecting the Dandan site (collectively }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Agencies}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [2]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Agencies found that Parcel A of Guatali was unsuitable because it was owned by the federal government and because of slope and geological exclusionary criterion.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies found that Malaa was unsuitable because of slope and incompatible land use.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Plaintiff Taxpayers sought a preliminary injunction to prevent expenditure of p ublic funds on an environmental impact study for Dandan unless Guatali and Malaa were also studied, arguing that the Agencies used impermissible exclusionary criteria, and that consideration of the Guatali site should not have been limited to Parcel A.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 On the Agencies\rquote motion for summary judgment, the trial court held that legislative references referred exclusively to Parcel A of Guatali, and that Parcel A was appropriately excluded from consideration.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The court summarily denied Plaintiffs\rquote }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 motion for reconsideration of that ruling.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The lower court also denied Plaintiffs\rquote motion for a preliminary injunction, finding that the Agencies acted within their authority in excluding Malaa based on slope.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [3]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The matter comes before this court on an appeal from the trial court\rquote s denial of Plaintiff Taxpayers \rquote motion for reconsideration and motion for preliminary injunction.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 We decline to exercise our discretion to review the denial of the motion for reconsideration, finding none of the criteria for discretionary review have been met.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In addition, we find no abuse of discretion in the denial of a preliminary injunction because DPW and GEPA could reasonably have interpreted the law to permit the consideration of slope as a legitimate criterion for exclusion of Malaa.}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 I.}{\b\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Background}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [4]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Ordot Landfill site has been a dumping ground since the 1940s, when it was used by the Japanese during World War II.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 After the liberation of Guam, the site continued to be used by the United States Navy for waste disposal.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The site was transferred to the Government of Guam in 1950, and has been operated as a dump by DPW.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The landfill was not properly lined or capped, and in 1982, the United States Environmental Protection Agency (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 US EPA}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) initiated a formal investigation of the Ordot Dump for possible environmental violations.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The US EPA issued orders beginning in 1986 requiring Guam to address environmental problems at the dump, including leachate discharges to the nearby Lonfit River and buildup of carbon monoxide.}{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 The Ordot Landfill has also had problems with rats, flies, mosquitoes, odors, and major fires. Record on Appeal, tab 35 (Mem. in Supp. of Mot. to Enter Consent Decree at 2).}}}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In the late eighties and early nineties, Guam was found to have violated the US EPA\rquote s orders.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [5]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab In 1994, the Guam Legislature found that the Ordot Landfill had }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 now reached beyond its capacity,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and required that a proposed site for a new landfill be identified.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guam Pub. L. 22-115:1 (Apr. 25, 1994).}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In May 1996, the Guam Legislature passed a bill indicating that the opening of a new landfill and the closing of the Ordot Landfill had }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 dragged on interminably with no fixed date in sight for accomplishment,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and that the legislature }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [t]herefore . . . has agreed to establish sites for the new landfill}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 at Guatali and Malaa unless there was }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 any legitimate reason}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 that those sites could not be used.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guam Pub. L. 23-95:1, 2 (May 8, 1996).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [6]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab In December 1996, DPW contracted with Guam Resource Reco very Partners to begin working on the landfill, but the Legislature had not appropriated funds to the contract, and in 1997 the Legislature explicitly blocked funding for the contract.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guam Pub. L. 24-57:6 (June 30, 1997).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In March 1997, the Legislature passed Public Law 24-06, with the stated intent of }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 establish[ing] policy and legal authority for the privatization of a Municipal Solid Waste Landfill Facility . . . at a site to be determined by the government of Guam.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guam Pub. L. 24-06:1 (Mar. 20, 1997).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The law provided that the landfill }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 shall be located at either Guatali or Malaa, or both, as prescribed in Public Law 22-115 and described in the Environmental Impact Statement of November 1995.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id. }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \'a7 4(e).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [7]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab In February 1998, the Legislature passed a bill requiring GEPA to prepare and adopt an Integrated Solid Waste Management Plan (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Waste Management Plan}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) within 300 days, including }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 an identification of potential sites for future sanitary landfills.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Bill 4 95, 24th Legislature, \'a7\'a7 4, 10 (1998).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The same law required DPW to implement the plan.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id. }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \'a7 2.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 While the law was pocket vetoed, it was subsequently }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 repealed and reenacted }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 by Public Law 24-272, though the effectiveness of the reenactment is in dispute.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [8]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab GEPA prepared a Waste Management Plan identifying Guatali as the site of the new landfill.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Legislature approved and amended the Waste Management Plan in 2000.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guam Pub. L. 25-175:2 (Dec. 14, 2000).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Legislature permitted GEP A to modify the plan }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 in accordance with the provisions of the Administrative Adjudication Law and Public Law Number 24-272, but }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 only }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 in a manner consistent with this Act.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [9]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab In August 2002, the United States filed a com plaint in federal district court alleging that the Government of Guam was in violation of the Clean Water Act through the continued use of the Ordot Dump.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The parties eventually reached an agreement, and in October and November, 2003 signed a Consent Decree, which was entered on the docket by the District Court on February 12, 2004.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Consent Decree required, }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 inter alia}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , that DPW submit a list of at least three potential landfill sites to the US EPA and GEPA within thirty (30) days of the filing of the decree.}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [10]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab DPW and GEPA prepared a Preliminary Landfill Site Suitability Report (}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Suitability Report}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) in March 2004.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Suitability Report states that there were more than twenty potential landfill locations examined, including both Guatali and Malaa, which are listed as }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Previously Identified Landfill Sites.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In the first level of screening, DPW and GEPA used site screening assumptions, location restrictions, and exclusionary criteria specified in the Guam Solid Waste Disposal Rules and Regulations to narrow the list of potential landfill sites to twelve.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guatali was eliminated based on }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 slope and geological exclusionary criterion}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and not included with the twelve sites.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appellants\rquote Excerpts of Record (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ), p. 38 (Prelim. Landfill Site Suitability Report).}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Further screening eliminated another six sites, including Malaa, leaving six potential sites on the Preliminary Area List.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Malaa was eliminated based on }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 slope exclusionary criterion}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 existing land use incompatibility.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 at 37-38.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The remaining six sites were evaluated and scored based on nine screening criteria.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Dandan, Sabanan Batea, and Lonfit scored the highest and were identified as the three potential landfill sites required by the Consent Decree.}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [11]\tab }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 On August 19, 20 04, Plaintiff Taxpayers filed a complaint in the Superior Court of Guam seeking declaratory judgment, injunctive relief, damages, and attorneys\rquote fees.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Plaintiffs Rosanna San Miguel and others describe themselves as }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 United States citizens, Guam taxpayers and residents of Guam.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, p. 2 (Compl. \'b6 2).}{\b\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 On October 18, 2004, Defendant Agencies filed a motion to dismiss, for summary judgment, or to abstain or stay proceedings.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 On January 18, 2005, Taxpayers moved for summary judgment or, i n the alternative, for a preliminary injunction to prevent the government from spending public funds on environmental impact statements for the three potential landfill sites identified in the Suitability Report.}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [12]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab On January 31, 2005, based on the find ings contained in the Suitability Report, the Agencies informed the US EPA that }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Dandan}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 would be the site of the new landfill.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appellants\rquote Opening Brief, Ex. 4 (Feb. 22, 2006).}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The US EPA approved the }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Dandan}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 site.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [13]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab On July 6, 2005, the lower court ent ered partial summary judgment in favor of the Agencies with respect to the Guatali site, but denied summary judgment with respect to Malaa.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The court held that the references to Guatali in Public Laws 23-95, 24-06, and 25-175 were only to Parcel A of Guatali, and not Parcel B.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Because Parcel A is owned by the federal government, the court found that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 the Government of Guam need not consider }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guatali }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 as a landfill site.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, p. 112 (Decision & Order).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 With respect to Malaa, the trial court concluded that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 there are material facts in dispute regarding why }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Malaa}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 was not considered as a proposed landfill site.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, p. 111.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Taxpayers moved for reconsideration of the court\rquote s decision, which the court denied.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [14]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The trial court also heard arguments on the Taxpayers\rquote request for a preliminary injunction to prevent the expenditure of public money to conduct environmental impact statements until Malaa is included as a potential site.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The trial court issued an order on September 19, 2005, ruling against the Taxpayers on the grounds that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 there is sufficient evidence to show that }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Malaa}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 was appropriately considered and rejected as a proposed landfill site.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, p. 121 (Decision & Order re Prelim. Inj.).}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Taxpayers now appeal the trial court\rquote s denial of their motion for reconsideration and for a preliminary injunction.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 II.}{\b\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Jurisdiction}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [15]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab This court exercises its jurisdiction over the appeal from the trial court\rquote s denial of a motion for preliminary injunction pursuant to 7 GCA \'a7 25102(f), which provides that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [a ]n appeal . . . may be taken . . . [f]rom an order . . . refusing to grant . . . an injunction,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and 7 GCA \'a7 3108(b), which provides that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [o]rders other than final judgments shall be available to immediate appellate review as provided by law.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See Guam Imaging Consultants, Inc. v. Guam Mem\rquote l Hosp. Auth}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 15 \'b6 14.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [16]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers also appeal from the trial court\rquote s denial of their motion for reconsideration of an interlocutory order granting partial summary judgment to the Agencies with respect to Guatali.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 An interlocutory appeal is discretionary by this court and should only be exercised under }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 exceptional circumstances.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Merchant v. Nanyo Realty, Inc.}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1997 }{\lang2057\langfe1033\langnp2057\insrsid1911749 Guam }{\insrsid4344184 16 \'b6 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 6. Both sides assert that jurisdiction is appropriate under 7 GCA \'a7 3108(b), which provides this court with discretionary review of an interlocutory order where this court }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 determines that resolution of the questions of law on which the order is based will:}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 (1) Materially advance the termination of the litigation or clarify further proceedings therein; \par (2) Protect a party from substantial and irreparable injury; or \par (3) Clarify issues of general importance in the administration of justice.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par 7 GCA \'a7 3108(b).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Subsections (1) and (3) permit interlocutory review in order to addr ess concerns of judicial efficiency in specific circumstances.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 People v. Angoco}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2006 Guam 18 \'b6 19.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Subsection (2) contemplates allowing an appeal to resolve questions of law so as to protect a party from substantial and irreparable injury.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\i\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [17]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers do not specify how any of these factors have been met.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies argue that the first prong has been met, asserting that interlocutory review would materially advance the termination of litigation and clarify further proceedings i n this action because one of the issues raised by the motion for reconsideration may be determinative of the motion for preliminary injunction.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Specifically, they assert that both motions are affected by the issue of the successive impact of Public Laws 24-06 and 25-175 on the landfill site designation provision of Public Law 23-95.} {\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appellees\rquote Br., p. 4 (Mar. 24, 2006).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 That issue, however, is tangential to the preliminary injunction motion, and fails to constitute an }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 exceptional circumstance}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 warranting interlocutory review.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 We find that none of the grounds set forth in 7 GCA \'a7 3108 exist in this case.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 We therefore decline to review the trial court\rquote s order denying the Plaintiff Taxpayers\rquote motion for reconsideration, and the underly ing determination that Guatali was properly excluded as a potential landfill site.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 III.}{\b\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Standard of Review}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [18]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab This court reviews the grant or denial of a preliminary injunction for an abuse of discretion.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See Lands Council v. McNair}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 494 F.3d 771, 775 (9th Cir. 2007);}{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 HongKong & Shanghai Banking Corp. v. Kallingal}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2005 Guam 13 \'b6 17 (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote [A] lower court\rquote s grant of a preliminary injunction is generally reviewed for an abuse of discretion.\rquote }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Carlson v. Guam Tel. Auth.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 15 n.3).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A court abuses its discretion by basing its decision on an erroneous legal standard or clearly erroneous factual findings, or if, in applying the appropriate legal standards, the court misapprehended the law with respect to the underlying issues in the litigation.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Clear Channel Outdoor, Inc. v. City of L.A.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 340 F.3d 810, 813 (9th Cir. 2003); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also Carlson}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 15 (}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote [W]e review any determination underlying the grant [of an injunction] by the standard that applies to that determination.\rquote }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ) (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Dare v. California}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 191 F.3d 1167, 1170 (9th Cir. 1999)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A trial court\rquote s finding that a party failed to demonstrate a likelihood of success on the merits raises primarily legal issues that should be reviewed }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 de novo}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 .}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See Inland Empire Pub. Lands Council v. Schultz}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 992 F.2d 977, 980 (9th Cir. 1993); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 City of Tenakee Springs v. Clough}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 915 F.2d 1308, 1313 (9th Cir. 1990); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Assoc. Gen. Contractors of Am. v. Metro. Water Dist.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 159 F.3d 1178, 1180 (9th Cir. 1998) (reviewing the lower court \rquote s }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 determination that the preliminary injunction should be denied because [Appellant] had no likelihood of success on the merits }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 de novo}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 .}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 IV.}{\b\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Discussion}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [19]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Because we have declined to exercise jurisdiction over the reconsideration rulin g related to the exclusion of Guatali, the only remaining issue for this appeal is whether the trial court abused its discretion in denying the Taxpayers\rquote motion for a preliminary injunction related to Malaa.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In order for a preliminary injunction to be granted, the movant must show: }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 (1) irreparable injury and (2) likelihood of success on the merits.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 HongKong & Shanghai Banking Corp.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2005 Guam 13 \'b6 18 (citing }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Carlson}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 8).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 More specifically, the movant must demonstrate either:}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 a combination of probable success on the merits and the possibility of irreparable harm; or . . . that serious questions are raised and the balance of hardships tips in its favor.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \i\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A & M Records, Inc. v. Napster, Inc.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 239 F.3d 1004, 1013 (9th Cir. 2001).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A. \tab Findings Regarding Irreparable Injury}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [20]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers argue that the lower court committed reversible error by failing to make findings regarding irreparable injury.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The lower court instead based its decision entirely on the second requirement \endash the likelihood of success on the merits.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 When a trial court determines that a plaintiff\rquote s failure to show a likelihood of success on the merits is significant enough to prevent the injunction from issuing, }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 additional findings [a]re not necessary.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Leary v. Daeschner}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 228 F.3d 729, 739 n.3 (6th Cir. 2000); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also Jones v. City of Monroe}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 341 F.3d 474, 476 (6th Cir. 2003) (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [A] district court is not required to make specific findings concerning each of the four factors used [in federal courts] in determining a motion for preliminary injunction if fewer factors are dispositive of the issue.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 New Comm. Wireless Servs., Inc. v. SprintCom, Inc.}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 287 F.3d 1, 9 (1st Cir. 2002) (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The sine qua non of this four-part inquiry [for issuing a preliminary injunction] is lik elihood of success on the merits: if the moving party cannot demonstrate that he is likely to succeed in his quest, the remaining factors become matters of idle curiosity.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [21]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Plaintiff Taxpayers argue that the required showing of likelihood of success on the merits varies with the showing of irreparable harm, and that it was therefore insufficient for the lower court to make findings on likelihood of success alone.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appellants\rquote Opening Brief, p. 23 (citing }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 San Diego Comm. Against Registration & the Draft v. Governing Bd. of Grossmont Union High Sch. Dist.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 790 F.2d 1471, 1473 (9th Cir. 1986), }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 abrogated on other grounds}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Planned Parenthood of S. Nev., Inc. v. Clark County Sch. Dist.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 941 F.2d 817, 827-28 (9th Cir. 1991)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 As the Ninth Circuit has stated, }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote the required showing of harm varies inversely with the required showing of meritoriousness.\rquote }{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Republic of the Philippines v. Marcos }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 862 F.2d 1355, 1362 (9th Cir. 1988) (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Rodeo Collection, Ltd. v. West Seventh}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 812 F.2d 1215, 1217 (9th Cir. 1987)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 If the balance of hardships tips sharply towards the plaintiff, the plaintiff need not demonstrate a }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 probability }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 of success}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 on the merits, but only that there is a }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 fair chance}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 of success}{\lang2057\langfe1033\langnp2057\insrsid1988354 "} {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 or that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 serious questions}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 are raised.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 (emphasis added); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 accord Lands Council}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 494 F.3d at 775. }{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [22]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Thus, if there was less than a }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 fair chance of success}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 on the merits, then no showing of irreparable harm would justify the issuance of an injunction, and the lower court did not abuse its discretion in not making a finding on the record regarding irreparable injury.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 In the interest of judicial economy and in order to conduct a complete review of the issues on appeal, we urge trial courts to make a full assessment on the record of both factors in considering whether to grant or deny a motion for a preliminary injunction, regardless of whether there was any likelihood of success on the merits. }{ \i\fs24\insrsid4990716\charrsid5007015 See}{\fs24\insrsid4990716\charrsid5007015 }{\i\fs24\insrsid4990716\charrsid5007015 Abney v. Amgen, Inc.}{\fs24\insrsid4990716\charrsid5007015 , 443 F.3d 540, 547 (6th Cir. 2006) (\'93 [E]ven though a finding of no likelihood of success \lquote is usually fatal[,]\rquote a district court should ordinarily analyze all of the factors.\'94) (citation omitted and second alteration in original);}{\i\fs24\insrsid4990716\charrsid5007015 Leary}{\fs24\insrsid4990716\charrsid5007015 , 228 F.3d at 739 n.3 (\'93 We nonetheless note that it is generally useful for the district court to analyze all four of the preliminary injunction factors, especially since our analysis of one of the factors may differ somewhat fr}{\fs24\insrsid5007015\charrsid5007015 om the district court\rquote s.\'94).}}}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 On the other hand, if there is at least a fair chance of success on the merits, then we must remand to the trial court to determine the balance of hardships.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 B.\tab Likelihood of Success on the Merits}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [23]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers argue that the Agencies\rquote designation of Dandan as the site for Guam\rquote s new landfill was contrary to law, and seek to prevent the government from spending money on a new landfill at the proposed Dandan site without further considering the Malaa site. While an agency\rquote s interpretation of a s tatute is a question of law reviewed }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 de novo}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , review is limited to }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote whether the agency\rquote s conclusion is based on a permissible construction of the statute.\rquote }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Ada}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 v. Guam Tel. Auth.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 10 \'b6 10 (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Chevron, U.S.A., Inc. v. Natural Resources Def. Council, Inc.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 467 U.S. 837, 843 (1984)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 If a statute is silent or ambiguous, courts }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 should defer to the agency \rquote s reasonable interpretation of the statute.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Carlson}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 17.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Deference to an agency\rquote s technical expertise and experience is particularly warranted with respect to questions involving engineering and scientific matters.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 United States v. Alpine Land & Reservoir Co.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 887 F.2d 207, 213 (9th Cir. 1989).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 If, however, an agency\rquote s construction of a statute is }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 contrary to clear congressional intent or frustrate[s] the policy that Congress sought to implement,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 then the court }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 must reject those constructions.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Ada}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 10 \'b6 10.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Thus, Taxpayers could prevail on the merits only if the Agencies\rquote in terpretation of the controlling laws were unreasonable, contravened clear legislative intent, or frustrated the policy that the legislature sought to implement.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See Carlson}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 17; }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Ada}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 10 \'b6 10.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [24]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Specifically, Taxpayers dispute the Agencies\rquote interpretation of: (1) Public Law 23-95, which named Guatali and Malaa as the primary and secondary sites for the landfill; (2) Public Law 24-06, which stated that the landfill }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 shall be located at either Guatali or Malaa, or both}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ; a nd (3) Public Law 24-272, which purportedly authorized the Agencies to adopt an interim and final Solid Waste Management Plan, including an identification of potential sites for the landfill.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1911749 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 1.\tab Whether the Agencies\rquote Interpretation of Public Law 23-95 Was Reasonable}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [25]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Public Law 23-95 established Guatali and Malaa as the primary and secondary sites for the new landfill, but explicitly allowed that those sites could be rejected }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 for any legitimate reason}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 :}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The primary site for the new landfill shall be that area in central Guam, known as Guatali, located near the old GORCO Oil site.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The government of Guam and its agencies shall immediately commence the planning and development of this new landfill site so that it can begin to be utilized at the earliest possible date.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 If}{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 for any legitimate reason}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , it is found that Guatali can not be used, the secondary site shall be that area known as Malaa.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The same conditions shall apply to Malaa as stated for Guatali if Guatali can not be used.}{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 23-95:2 (emphasis added).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Taxpayers contend that Malaa may only be excluded pursuant to criteria }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 based in federal or local law, []or . . . required for consideration by the Solid Waste Plan adopted via Public Law 25-175.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appellants \rquote Opening Brief, pp. 17, 19.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies, however, contend that the Legislature provided them broad discretionary authority through the use of the phrase }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 any legitimate reason.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 23-95:2.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The statute itself is silent regarding the Legislature\rquote s intended meaning of the phrase.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [26]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab According to its plain meaning, }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 legitimate}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 means }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [c]omplying with the law; lawful . . . [g]enuine; valid.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Black\rquote s Law Dictionary 912 (7th ed. 1999); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 cf. DynCorp, Inc. v. NLRB}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 233 Fed. Appx. 419, 428 (6th Cir. 2007) (defining a }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 legitimate reason}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 to question an employee about a union matter to include reasons }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 related to a legitimate policy of the employer}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Hardcastle v. Horn}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 368 F.3d 246, 258 (3d Cir. 2004) (defining }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 legitimate reason}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 for a peremptory challenge under }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Batson }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 as a reason that does not deny equal protection).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Given the plain meaning of }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 any legitimate reason,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 it would not be unreasonable or }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 contrary to clear [legislative] intent}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 for the Agencies to interpret those words of Public Law 23-95 to include genuine or valid policy reasons.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See Carlson}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 17; }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Ada}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 10 \'b6 10.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Consequently, if the reasons provided by the Agencies for site exclusion are genuine and lawful \endash not pretextual or unlawful \endash we will not overturn the Agencies\rquote interpretation.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [27]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Agencies excluded Malaa based on }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 slope exclusionary criterion}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 because the slope exceeded 20% and based on existing land use incompatibility.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, pp. 35, 37-38 (Prelim. Landfill Site Suitability Report).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [28]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers\rquote expert witness, Dr. Pete r Melnyk, testified that the 20% slope criterion has no basis in federal law, and should not be the basis for the exclusion of a prospective site.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Transcript (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Tr.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ), vol. III, pp. 46, 48 (Mots. Hr\rquote g, Apr. 22, 2005).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 He further testified that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 in some ways . . . you can engineer [a 20% slope] to be a benefit.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 at 49.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 According to Dr. Melnyk, some landfill designers had intentionally sought out very steep areas to use as landfills in the past: }{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 I know that in the selection criteria, the \endash o r the site selection criteria, they list a 20% slope exclusion.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 I don\rquote t agree[.] . . . [L]andfill design has changed over the years.} {\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 When I started out in this business back in the eighties, we used to look for very \endash we used to call them canyon fills[.] . . . That is you try to find a very steep area and you try and fill the \endash fill that canyon from the bottom working your way up. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id. }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 at 46.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 For example, landfills have previously been built with slopes greater than 20% in Los Angeles and Hawaii.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id. }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 at 48.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [29]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Dr. Melnyk conceded, however, that slope could be a detrimental characteristic, depending on the specific landfill site:}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Q: Is having a slop[e] on a proposed landfill site a detrimental characteristic? \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A: It can -- again, it\rquote s site specific, it can be, basically. }{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 But on the other hand you can use a severe -- you can use a severe slope as I saw in California or in Oahu to both anchor the landfill and to obtain compression of the refuse over time. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par Tr., vol. IV, p. 33 (Mots. Hr\rquote g, Aug. 2, 2005).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 He also conceded that 20% slope could increase at least some of the costs associated with a landfill:}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Q.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Would the cost to engineer [a landfill] in a slope with a slope factor exceeding 20 percent be greatly enhanced, greatly increased? \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Well, it\rquote s -- there -- you know, there are so many factors involved in estimating the cost of the landfill, it\rquote s hard to . . . pinpoint.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Yes, this will increase the -- If you have a slope of 20 percent, you obviously are going to do more earth moving. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id. }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 at 34.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [30]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Dr. Melnyk further testified that a 20% slope might make a landfill more difficult to}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 access:}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [T]he site selection criteria, they list a 20% slope exclusion.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 I don\rquote t agree \endash }{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 One of the reasons they say is - - well, it\rquote s difficult to engineer, difficult to access, yes, I\rquote ll grant you that, it\rquote s difficult to climb a 20% slope, and it\rquote s also difficult to anchor a liner which is a require - - which is a requirement of both federal and Guam law for a landfill.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Well, the last assumption is wrong; for instance, in Guatali, we were going to put a liner in a slope that\rquote s at 55%, so - - and we have no trouble anchoring the liner under that condition. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par Tr., vol. III, p. 46 (Mots. Hr\rquote g, Apr. 22, 2005).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [31]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers also called as an expert witness Mr. Juan C. Tenorio, who authored the Draft Environmental Impact Study.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Tenorio testified that, although slope is not necessarily detrimental, he considered slope as a factor in assessing the landfill sites:}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Q.} {\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 So, is slope a bad thing when you\rquote re building a landfill?}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 A.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 No, no, not to my knowledge again.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 I\rquote m sorry, I\rquote m not necessarily an expert in this . . . .}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 It was \endash it was one of the consideration[s], but it was just one . . . .}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Tr., vol. IV, p. 66 (Mots. Hr\rquote g Aug. 2, 2005); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, p. 55 (Draft Environmental Impact Study, tbl. 8) (listing slope as a criterion).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [32]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Although the importance of slope is in dispute, there is no indication that the Agencies\rquote use of the slope criterion was pretextual or unlawful.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [33]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Moreover, the use of the criterion was not contrary to clear Legislative intent.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies developed a list of five exclusionary criteria }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 to serve as the first level screening effort to narrow the universe of potential land areas.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ER, p. 35 (Prelim. Landfill Site Suitability Report, p. 4 (2004)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Among the five exclusionary criteria were }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [s]lopes in excess of 20%,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 which the report characterized as }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Severe Topography,}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and was deemed }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 too unstable for safe, cost effective landfill construction and phasing, especially when considering liner side slope design requirements.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In passing Public Law 23-95, the Legislature indicated that its intent was to expedite the establishment of a site for the new landfill.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 23-95 (describing as }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 interminabl[e]}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 the delay in establishing a site).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies\rquote use of 20% slope and other }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 first level screening}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 criteria serves the Legislature\rquote s stat ed purpose of expediting site selection, even if the slope requirement does not take into account site-specific considerations related to the impact of the slope.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [34]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab As such, we cannot say that the Agencies\rquote use of slope criterion was unreasonable in lig ht of Public Law 23-95, contrary to clear legislative intent, or that it frustrated the policy that the Legislature sought to implement.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Carlson}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 17; }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Ada}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 10 \'b6 10.}{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{ \fs24\insrsid4990716\charrsid5007015 Having found that the Taxpayers exclusion of Malaa was not unreasonable based on the slope criterion, we need not address the Agencies\rquote alternative basis for excluding Malaa \endash the incompatible land use criterion.}}}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 2.\tab Whether Agencies\rquote Interpretation of Public Law 24-06 Was Reasonable}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [35]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers argue that the Agencies\rquote exclusion of Malaa was inconsistent with Public Law 24-06, the Solid Waste Landfill Authorization Act of 1997.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Public Law 24-06 provided that the landfill }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 shall be located at either Guatali or Malaa, or both, as prescribed in Public Law 22-115 and described in the Environmental Impact Statement of November 1995.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 24-06:4(e).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In turn, Public Law 22-115 required that a proposed landfill site be identified by the Governor, but di d not itself identify a site.}{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 Public Law 22-115 required, }{\i\fs24\insrsid4990716\charrsid5007015 inter alia}{ \fs24\insrsid4990716\charrsid5007015 , that \'93the Governor shall identify a proposed site for the location of the new solid waste landfill and . . . submit to the Legislature an annual report . . . each of the next three (3 ) years . . . includ[ing] the status of the progress of activation of the new landfill site.\'94 P.L. 22-115:4.}}}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Environmental Impact Statement of November 1995, meanwhile, examined Guatali and Malaa as potential sites of a new landfill, concluding that Guatali was the preferred site.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [36]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Legislative Intent section of Public Law 24-06 stated that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [t]he purpose of this Act is to establish policy and legal authority for the privatization of a [landfill] by means of a long-term contract for the devel opment, construction and operation [of a landfill facility] at a }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 site to be determined by the government of Guam.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 24-06:1 (emphasis added).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The law also provided that DPW }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 is the appropriate government agency for the development of a new landfill,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 id.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , and that both GEPA and DPW }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 shall monitor the performance of the contractor,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 id. }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \'a7 4(u).}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [37]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Nothing in Public Law 24-06 contradicts the statement in Public Law 23-95 that the Agencies could exclude Malaa for }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 legitimate reasons,}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and the Legislature never repealed Public Law 23-95.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies\rquote interpretation of Public Law 24-06 as not prohibiting them from excluding Malaa based on a valid practical consideration, slope, was not unreasonable or contrary to clear legislative intent.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See Carlson}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 17; }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Ada}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 10 \'b6 10.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 3.\tab Whether the Agencies\rquote Interpretation of P.L. 24-272 Was Reasonable}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [38]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers dispute whether GEPA was authorized to select alternative sites for a solid waste landfill.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 GEPA was authorized by Bill 495 of the 24th Legislature (which is sometimes referred to as Guam Public Law 24-139)}{ \cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 The Legislature incorrectly assumed that Bill 495 was lawfully enacted and referred to it as Public Law 24-139.}}}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and by Guam Public Law 24-272 to adopt an interim Waste Management Plan and a final Waste Management Plan, which would include }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 an identification of potential sites for future sanitary landfills.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Guam Pub. L. 24-272:10 (Oct. 2, 1998) (codified at 10 GCA \'a7 51119(a)(6)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The law also required GEPA to revise the Waste Management Plan every five years.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 24-272:4 (codified at 10 GCA \'a7 51103(a)(2)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 When the Legislature adopted GEPA\rquote s first final Waste Management Plan, it provided that GEPA could modify the plan }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 in accordance with the provisions of the Administrative Adjudication Law and Public Law Number 24-272, but }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 only }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 in a manner consistent with this Act.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 25-175:2.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Thus, the Legislature granted GEPA authority to identify potential sites for landfills, to exclude Guatali and Malaa for }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 any legitimate reason,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and to revise the Waste Management Plan that included the site selection.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Assuming these Public Laws were valid, then GEPA\rquote s actions in selecting potential landfill sites were within the authority granted to it by the Legislature.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Cf. Carlson}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2002 Guam 15 \'b6 17 (requiring deference to a reasonable agency interpretation of the law where the statute is silent or ambiguous).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [39]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Taxpayers point out, however, that this court held in }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Gutierrez v. Pangelinan}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2000 Guam 11 \'b6 8, that Bill 495 was pocket vetoed and never became law.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Further, this court stated in }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan v. Gutierrez}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 16 \'b6 43, that Guam Public Law 24-272 was invalid because it purported to reenact a law (Bill 495 or Public Law 24-139) that was never lawfully enacted.}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [40]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Agencies now ask us to overturn the }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan v. Gutierrez}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 decision as improperly decided.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 It is true . . . that the court has the ability to overturn precedent.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 People v. Villapando}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 31 \'b6 29.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Stare decisis}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 is a }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote principle of policy,\rquote and not . . . an \lquote inexorable command.\rquote }{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Seminole Tribe v. Florida}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 517 U.S. 44, 63 (1996) (citation omitted).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 We do not overturn precedent lightly, however, as the}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 doctrine of }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 stare decisis}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 permits society to presume that bedrock principles are founded in the law rather than in the proclivities of individuals, and thereby contributes to the integrity of our constitutional system of government, both in appearance and in fact.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Vasquez v. Hillery}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 474 U.S. 254, 265-66 (1986).}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 This policy does not shield court-created error from correction.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 People v. Mendoza}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 4 P.3d 265, 285 (Cal. 2000).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Rather, the doctrine is flexible and permits us to depart from our own precedent in an appropriate case.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In deciding whether to depart from precedent, this court may consider whether the prior decision was }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote unsound in principle.\rquote } {\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Allied Signal, Inc. v. Director}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 504 U.S. 768, 783 (1992) (quoting }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Garcia v. San Antonio Metro. Transit Auth.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 469 U.S. 528, 546 (1985)); }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also Oraee v. Breeding}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 621 S.E.2d 48, 53-54 (Va. 2005) (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 While we adhere strongly to the doctrine of }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 stare decisis }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 . . . this is one of those rare situations in which we cannot perpetuate a clearly incorrect application of the law.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [41]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab In determining that Public Law 24-272 was invalid, the }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan v. Gutierrez}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 court\rquote s reasoning was conclusory and cited no authority.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The court stated only that:}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Public Law 24-272 repealed and reenacted Public Law 2[4]-139.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 However, Public Law 2[4]-139 was subsequently invalidated by this court in }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Gutierrez v. Pangelinan}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2000 Guam 11.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Therefore, we hold that Public Law 24-272 is without legal effect.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 16 \'b6 43.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [42]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The 2004 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 decision contradicted a prior Ninth Circuit decision, }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Gutierrez v. Pangelinan}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , which stated that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [t]he reenacted provis ions stand on their own as duly-enacted sections of Public Law 24-272.}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 276 F.3d 539, 549 (9th Cir. 2002).}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The 2004 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 decision did not distinguish or otherwise acknowledge the Ninth Circuit\rquote s contradictory statement.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 With the exception of these two earlier decisions related to Guam Public Law 24-272, there is little or no case law addressing the specific situation we face here \endash where a statute purports to repeal and reenact a law that is subsequently found to be }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 void ab initio}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 .}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [43]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Agencies argue that any invalid provision of the law can be severed pursuant to the law\rquote s severability provision.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Public Law 24-272 provides that:}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 If any provision of this Law or its application to any person or circumstance is found to be invalid or contrary to law, such invalidity shall not affect other provisions or applications of this Law which can be given effect without the invalid provisions or application, and to this end the provisions of this Law are severable. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par P.L. 24-272:2.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The presence of such a severability clause }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote creates a presumption that [the Legislature] did not intend for the validity of a statute to depend on the survival of [invalid] provisions,\rquote }{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 but that presumption }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote is not conclusive.\rquote }{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In re Interpretation & Application of Sections 6 & 9 of the Organic Act of Guam}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 10 \'b6 54 (quoting }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 W. States Med. Ctr. v. Shalala}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 238 F.3d 1090, 1097 (9th Cir. 2001)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Unless it is evident that the legislature would not have enacted those provisions that are within its power, independent of the invalid provisions, the invalid portions may be severed.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 (citing }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Champlin Refining Co. v. Corp. Comm\rquote n of Okla.}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 286 U.S. 210, 234 (1932)).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Our test for whether an invalid provision may be severed from a statute is: (1) wh ether, if the invalid provisions are removed, the remaining provisions will be fully operative as law; and (2) if so, whether the legislative intent in enacting the public law can be accomplished through the remaining provisions.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Id.}{\i\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [44]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab We find that the first part of the test is satisfied.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 If the}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 provision purporting to repeal and reenact Public Law 24-139 is removed, the remaining provisions will be fully operative as law.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 24-272 (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Be it enacted by the People of Guam: . . . Title 1 0 of the Guam Code Annotated is hereby repealed and reenacted to read as follows: . . . .}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [45]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Under the second part of the test, we begin by examining the legislative intent in enacting the law.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Taxpayers contend that the Legislature\rquote s }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 single purpose}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 in passing Public Law 24-272 was to repeal and reenact sections 2 through 16 of Public Law 24-139 and not to revise the Guam Code Annotated.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Appellants\rquote Opening Supplemental Brief, pp. 7, 10 (Aug. 2, 2007).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The Agencies respond that the Legislative purpose in passing Public Law 24-272 was to make substantive changes to the laws of Guam, not just to repeal and reenact an existing public law.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [46]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab According to one treatise, when a law is repealed and reenacted, courts often assume that the legislatur e did not intend a repeal even if the legislature said that it did:}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \ql \li720\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In the situation in which there is a simultaneous repeal and re-enactment of a statute the courts seldom refer to [legislative] intent; and when they do refer to intent they say in effec t that the fact that the legislature has re-enacted the statute which it purported to repeal indicates that it did not intend a true repeal, but intended that the original statute should continue in force without interruption. \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \par M.L. Cross, 77 A.L.R.2d 336 \'a7 6 (collecting cases); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also In re Shaver}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 140 F.2d 180, 181 (7th Cir. 1944) (stating that repealed and reenacted statutes are regarded as having been continuously in force); }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Haines v. Dept. of Employment}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 270 P.2d 72, 73 (Cal. Dist. Ct. App. 1954) (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [ T]he reenactment neutralizes the repeal, and the provisions of the repealed act which are thus reenacted continue in force without interruption[.]}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 Further, a legislature\rquote s pronouncement that a law repealed an earlier law is not dispositive, but is a judicial question. }{\i\fs24\insrsid4990716\charrsid5007015 Gill v. Goldfield Consol. Mines Co.}{\fs24\insrsid4990716\charrsid5007015 , 176 P. 784, 786 (Nev. 1918) (\'93Whether a statute was repealed by a later one is a judicial, not a legislative, question.\'94); }{\i\fs24\insrsid4990716\charrsid5007015 Merlo v. Johnston City & Big Muddy Coal & Mining Co.}{ \fs24\insrsid4990716\charrsid5007015 , 258 Ill. 328, 334 (1913) (\'93 Whether a given act of the Legislature repeals a former one, and, if so, to what extent, is a judicial question, and a legislative declaration that an act is or is not repealed is only a declaration of the Legislature upon a judicial question, which is not binding on the courts.\'94).}}}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [47]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Here, Public Law 24-272 does not include a section regarding legislative findings or legislative intent.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Section 1 of the law simply states that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Sections 2 through 16 of Public Law No. 24-139 are hereby repealed and reenacted to read as follows . . . .}{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 24-272.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In turn, the revised sections 2 through 16 state that they repeal and reenact sections of the Guam Code Annotated.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Even though the law states that it repeals a prior public law, the legislative intent of the law was not necessarily a repeal.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 77 A.L.R.2d 336 \'a7 6.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Rather, based on the text of the law, it appears that the underlying legislative intent was to make substantive changes to the Guam Code Annotated to ensure that an appropriate legislative scheme was in place governing the disposal of solid waste on Guam. }{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 Public Law 24-272 made several minor revisions to 24-139, presumably to improve upon the prior legislation. }{\i\fs24\insrsid4990716\charrsid5007015 See }{\fs24\insrsid4990716\charrsid5007015 Appellees\rquote Supplemental Brief, pp. 8-9 (Aug. 16, 2007) (discussing differences between P.L. 24-139 and 24-272).}}}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The law\rquote s failure to repeal 24-139 does not interfere with the solid waste disposal scheme set up by the legislature.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Although there is some ambiguity, we cannot say that }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \lquote it is evident that the legislature woul d not have enacted [the valid] provisions . . . independently of . . . the invalid part.\rquote }{\lang2057\langfe1033\langnp2057\insrsid1988354 " }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 In re Interpretation & Application of Sections 6 & 9}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 10 \'b6 54.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 We therefore overrule }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Pangelinan}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 16 \'b6 43, as being }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 unsound in principle,}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 and find that the invalid portion of 24-272 can be severed.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Allied Signal }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 504 U.S. at 783; }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 see also Villapando}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 1999 Guam 31 \'b6 29 (}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [This] court has the ability to overturn precedent.}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 ).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 The remaining portions of Public Law 24-272 are valid.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 See In re Interpretation & Application of Sections 6 & 9}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 2004 Guam 10 \'b6 54.}{\cs27\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \chftn {\footnote \pard\plain \s26\qj \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid5007015 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs24\super\insrsid4990716\charrsid5007015 \chftn }{\fs24\insrsid4990716\charrsid5007015 In a somewhat analogous situation, when a court determines that a prior law was not repealed by a repeal and reenactment (because it remains continuously in force), the subsequent legislation purporting to reenact it remains valid. }{ \i\fs24\insrsid4990716\charrsid5007015 See}{\fs24\insrsid4990716\charrsid5007015 }{\i\fs24\insrsid4990716\charrsid5007015 In re Shaver}{\fs24\insrsid4990716\charrsid5007015 , 140 F.2d at 18; }{\i\fs24\insrsid4990716\charrsid5007015 Haines}{ \fs24\insrsid4990716\charrsid5007015 , 270 P.2d at 73. Similarly, even though Public Law 24-272 did not repeal Public Law 24-139, Public Law 24-272 should remain valid. More over, invalidating the entire law makes little policy sense. The express repeal and reenactment of a dubious law can provide greater certainty regarding the status of the questionable law, but only if the reenactment is considered valid regardless of the validity of the prior }{\fs24\insrsid5007015\charrsid5007015 l}{\fs24\insrsid4990716\charrsid5007015 aw.}}}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [48]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab Because Public Law 24-272 is valid, the Agencies\rquote had the authority to prepare and adopt an interim Waste Management Plan and a final Waste Management Plan consistent with the provisions of that law.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 P.L. 24-272:4 (codified at 10 GCA \'a7 51103).}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Plaintiffs claims have not raised }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 serious questions}{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 because they have less than a }{\lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 fair chance}{ \lang2057\langfe1033\langnp2057\insrsid1988354 "}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 of success on the merits, and, regardless of the balance of harms, a preliminary injunction is therefore inappropriate.}{ \lang2057\langfe1033\langnp2057\insrsid1988354 }{\i\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Marcos}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 , 862 F.2d at 1362.}{ \lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 V.}{\b\lang2057\langfe1033\langnp2057\insrsid13259889 \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [49]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab The Agencies were explicitly authorized to identify potential sites for the landfill, and were authorized to exclude Guatali and Malaa for any legitimate reason.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 Their use of slope as a criterion for the exclusion of Malaa was not an abuse of discretion.}{\lang2057\langfe1033\langnp2057\insrsid1988354 }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 We therefore }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 AFFIRM }{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 the lower court\rquote s denial of a preliminary injunction.}{\lang2057\langfe1033\langnp2057\insrsid13259889 \par }{\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1988354 \par }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 [50]}{\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 \tab In addition, we }{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 DECLINE }{ \lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1988354 to exercise our discretionary jurisdiction over the appeal of the motion for reconsideration, and the underlying order upholding the Agencies\rquote exclusion of Guatali. \par \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1911749 ROBERT J. TORRES}{ \b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1911749 \par Associate Justice \par }\pard \ql \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid11208504 {\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1911749 \par }\pard \qc \li0\ri0\nowidctlpar\tx2970\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid1911749 {\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1911749 F. PHILIP CARBULLIDO \par }{\b\lang2057\langfe1033\langnp2057\insrsid1911749\charrsid1911749 Chief Justice}{\b\lang2057\langfe1033\langnp2057\insrsid13259889\charrsid1911749 \par }}