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SULE, DDS, \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Plaintiff-Appellant, \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396 V}{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 GUAM BOARD OF EXAMINERS FOR DENTISTRY, and \par STANLEY Y. YASUHIRO, ROGER J. KANESHIRO, MARIA C.V. ALEGRIA, JANICE P. MALILAY, and ANTONIO M. 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Moylan, }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Esq}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 . \par 140 Skinner Plaza Bldg., Suite 201 \par 138 W Seaton Blvd.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par Hag\'e5t\'f1a, GU 96910\cell }{\ul\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Appearing for Defendants-Appellees:}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par David J. Highsmith, }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Esq.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Assistant Attorney General \par Office of the Attorney General \par 287 W O\rquote Brien Dr. \par Hag\'e5t\'f1a, GU 96910\cell }\pard \ql \li0\ri0\widctlpar\intbl\aspalpha\aspnum\faauto\adjustright\rin0\lin0 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \trowd \irow0\irowband0\lastrow \ts11\trgaph108\trleft-108\trftsWidth1\trftsWidthB3\trftsWidthA3\trautofit1\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tblrsid9188619\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol \clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth5508\clshdrawnil \cellx5400\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4068\clshdrawnil \cellx9468\row }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par BEFORE: ROBERT J. TORRES, Chief Justice}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 The signatures in this opinion reflect the titles of the justices at the time this matter was considered and determined.}}}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ; F. PHILIP CARBULLIDO, Associate Justice; KATHERINE A. MARAMAN, Associate Justice. \par \par }\pard\plain \s17\ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \b\fs24\ul\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\ulnone\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 TORRES, C. J.:}{\ulnone\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\b0\ulnone\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard\plain \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [1]}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This appeal arises out of a complaint filed in the trial court by Plaintiff-Appellant Hugh L. Sule, DDS (\'93Dr. Sule\'94) seeking declaratory and injunctive relief against the Defendants-Appellees Guam Board of Examiners for Dentistry, Stanley Y. Yasuhiro, Roger J. Kaneshiro, Maria C.V. Alegria, Janice P. Malilay, and Antonio M. Rapadas (collectively the \'93Dental Board\'94 ) stemming from a disciplinary action taken against him by the Dental Board during}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 me etings that took place in violation of the Open Government Law of Guam.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In addition, Dr. Sule brought a claim pursuant to the Enforcement of Proper Government Spending Act, also related to the improperly-noticed Dental Board meetings.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule applied }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ex parte}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 for a temporary restraining order (TRO).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 After a hearing on the matter, the trial court denied Dr. Sule\rquote s application for a TRO.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule timely appealed. For the reasons set forth below, we affirm the trial court\rquote s denial of the TRO, but vacate the }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 portion of the decision and order ruling on the merits of the Enforcement of Proper Government Spending Act claim.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par {\listtext\pard\plain\s18 \b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \hich\af0\dbch\af0\loch\f0 I.\tab}}\pard\plain \s18\qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\ls2 \pnrdate-1494037630\pnrstart0\pnrxst2\pnrxst0\pnrxst0\pnrxst0\pnrxst46\pnrxst0\pnrstop6\pnrstart1\pnrrgb1\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrstop9\pnrstart2\pnrnfc1\pnrnfc4\pnrnfc2\pnrnfc0\pnrnfc4\pnrnfc2\pnrnfc0 \pnrnfc4\pnrnfc2\pnrnfc0\pnrnfc0\pnrnfc1\pnrnfc0\pnrnfc0\pnrnfc0\pnrnfc0\pnrnfc0\pnrnfc0\pnrstop18\pnrstart3\pnrpnbr1\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0 \pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrstop36\adjustright\rin0\lin0\itap0\pararsid14242396 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 FACTUAL AND PROCEDURAL BACKGROUND}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \s18\ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard\plain \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [2]}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Board brought a disciplinary case against Dr. Sule, a licensed and practicing dentist in Guam.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The alleged violation forming the basis of the disciplinary case was Dr. Sule\rquote s failure to disclose in his 2003 and 2005 applications for renewal of his dentistry license the fact that there was a pending malpractice case against him.}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 The factual details underlying the disciplinary charges filed against Dr. Sule by the Dental Board are not relevant to the issue before the court, as the decision and order on review is the denial of a TRO.}}}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Board did not properly notice, in accordance with the Open Government Law, the November 19, 2008}{ \cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 The record is inconsistent as to the date on which this meeting took place \endash referred to in some places as November 19, 2007 }{\insrsid14242396\charrsid6825702 (}{\i\insrsid14242396\charrsid6825702 see}{\insrsid14242396\charrsid6825702 Excerpts of Record (\'93ER\'94) at}{\insrsid14242396 1 (Find. Fact & Concl. L., Dec. 9, 2009); }{\i\insrsid14242396\charrsid5077668 see also}{\insrsid14242396 Appellees\rquote Br. at 8 (July 29, 2010)), and in other places as November 19, 2008 (}{\i\insrsid14242396\charrsid7951323 see}{\insrsid14242396 ER at 2 (Find. Fact & Concl. L.). Based on how the events evolved, however, it appears that the 2008 date is the correct reference. }}}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 regular meeting of the Dental Board wherein the Dental Board approved the specification of charges against Dr. Sule \endash Disciplinary Proceeding Case No. 08-01.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 As a consequence, on June 26, 2009, the hearing officer in the matter filed a Findings of Fact & Conclusions of Law dismissing the specification of charges voted on at the November 19, 2008 meeting, citing as his sole basis for dismissal that charges were a legal nullity because of the Dental Board\rquote s failure to give proper notice of that meeting in violation of the Open Government Law.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [3]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Several months later, at its September 16, 2009 regular board meeting, the Dental Board voted to bring the same charges against Dr. Sule that had previously been dismissed for the notice violation \endash this time under Disciplinary Proceeding Case No. 09-01.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The October 28, 2009 date set for the initial hearing on the charges had to be rescheduled to November 4, 2009, again because of a failure to properly notice the hearing in accordance with the Open Government Law.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule alleges that at the November 4, 2009 hearing, the Dental Board set a scheduling order for the disciplinary case and voted to remove the hearing officer from deciding pending motions.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In a letter to Dr. Sule\rquote s counsel dated December 1, 2009, counsel for the Dental Board advised that there was a problem with the November 4, 2009 initial hearing relative to the Open Government Law and that this hearing would be reset for December 9, 2009.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Counsel for the Dental Board stated that at the December 9, 2009 hearing, the Dental Board would \'93begin again from scratch\'94 and issue a new scheduling order.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Supplemental Excerpts of Record (\'93SER\'94) at 79 (Ltr. from Atty. Highsmith to Atty. Moylan, Dec. 1, 2009).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [4]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In the intervening time between the November 4, 2009 hearing and the rescheduled December 9, 2009 hearing, Dr. Sule brought suit in the trial court against the Denta l Board and its individual members seeking to enjoin them from taking any further disciplinary action against him, citing as authority for the suit the provisions of the Open Government Law.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule also sought to have the Dental Board repay monies he alleges were illegally spent, pursuant to the Enforcement of Proper Government Spending Act.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [5]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule filed a Memorandum and Supplemental Memorandum Supporting Temporary Restraining Order & Permanent Injunction on November 27, 2009 and December 7, 2009, respectively.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 On December 16, 2009, Dr. Sule and the Dental Board entered into a stipulation and order wherein the Dental Board agreed to not meet on any matters pertaining to Dr. Sule\rquote s disciplinary case until Dr. Sule\rquote s request for injunction was heard by the trial court.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Board filed its opposition to Dr. Sule\rquote s motion for restraining order on December 31, 2009, and within the same document, filed a motion to dismiss Dr. Sule\rquote s complaint pursuant to Rule 12(b)(6) of the Guam Rules of Civil Procedure (GRCP).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [6]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 On January 5, 2010, Dr. Sule filed his reply to the Dental Board \rquote s opposition to his motion for restraining order, as well as his opposition to the Dental Board\rquote s motion to dismiss.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court heard arguments on the application for restraining order on January 8, 2010, and issued its decision and order on March 22, 2010.}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 Although neither party ordered transcripts of the trial court hearing, it appears that argument was confined to the motion for restraining order and did not address the Dental Board\rquote s motion to dismiss. }}}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In its decision and order, the trial court found that Dr. Sule had not met the first criterion required for obtaining a TRO or preliminary injunction, which is a factual showing of irreparable harm.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Finding that Dr. Sule\rquote s failure to meet this requirement negated the need for the court to discuss the second criterion, which is his likelihood of success on the merits, the trial court denied Dr. Sule\rquote s }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ex parte}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 application for a TRO.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Decision and Order was entered on the docket, and Dr. Sule timely appealed.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 II.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{ \b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 JURISDICTION}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [7]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This court has jurisdiction to hear appeals of orders other than final judgments pursuant to 7 GCA \'a7 3108(b) if \'93provided by law.\'94 7 GCA \'a7 3108(b) (2005); }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 see also HongKong & Shanghai Banking Corp. v. Kallingal,}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 2005 Guam 13 \'b6 16; }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Guam Imaging Consultants, Inc. v. Guam Mem'l Hosp. Auth.,}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 2004 Guam 15 \'b6 14.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \'93 An order denominated a TRO that possesses the qualities of a preliminary injunction is a reviewable interlocutory order.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Serv. Emp . Int\rquote l Union v. Nat\rquote l Union of Healthcare Workers}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 598 F.3d 1061, 1067 (9th Cir. 2010).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 An appeal from a decision granting{\*\bkmkstart SR_1798}{\*\bkmkstart SearchTerm}{\*\bkmkend SR_1798}{\*\bkmkend SearchTerm} or denying a preliminary injunction}{ \cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 The Guam Rules of Civil Procedure (\'93GRCP\'94) allow the trial court to issue a TRO without}{ \insrsid14242396\charrsid16715483 written or oral notice to the adverse party or that party}{\insrsid14242396 \rquote }{\insrsid14242396\charrsid16715483 s attorney if it clearly appears from specific facts shown by affidavit or by the verified complaint that immediate and irreparable injury, loss, or damage will result to the applicant before the adverse party or that party}{\insrsid14242396 \rquote }{ \insrsid14242396\charrsid16715483 s attorney can be heard in opposition}{\insrsid14242396 . Guam R. Civ. P. 65(b). Unlike a TRO, which is limited in }{\insrsid14242396\charrsid10712475 duration to no more than }{\insrsid14242396 ten}{ \insrsid14242396\charrsid10712475 days absent an extension, a preliminary injunction is intended to maintain the status quo until a hear ing on the merits may be had and may not issue without notice to the adverse party. GRCP 65(a). In this case, the Dental Board was provided notice}{\insrsid14242396 . Moreover, the parties had an opportunity to file written argument and present oral argument on the matter.}{\insrsid14242396\charrsid10712475 }{\insrsid14242396 Although }{\insrsid14242396\charrsid10712475 Dr. Sule originally filed an }{ \i\insrsid14242396\charrsid10712475 ex parte}{\insrsid14242396\charrsid10712475 application for a TRO, }{\insrsid14242396 the trial court held a hearing on the application before issuing its order}{\insrsid14242396\charrsid10712475 . }{\insrsid14242396 The Ninth Circuit, applying the Federal Rules of Civil Procedure on which the GRCP are based, has found that when the trial court affords the parties the opportunity to file written materials and present oral argument, the matter is \'93 akin to a preliminary injunction\'94 and reviewable as such, even though it is termed a TRO. }{\i\insrsid14242396\charrsid13455532 See Bennett v. Medtronic}{\insrsid14242396 , Inc., 285 F. 3d 801, 804 (9}{\insrsid14242396\charrsid13455532 th}{ \insrsid14242396 Cir. 2002).}{\insrsid14242396\charrsid10712475 }{\*\bkmkstart SR_3726}{\*\bkmkstart SR_3729}{\*\bkmkstart SR_3731}{\*\bkmkstart SR_3743}{\*\bkmkend SR_3726}{\*\bkmkend SR_3729}{\*\bkmkend SR_3731}{\*\bkmkend SR_3743}}}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 is permitted under 7 GCA \'a7 25102(f) (2005); }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Guam Imaging Consultants, Inc.}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2004 Guam 15 \'b6 14.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 III. STANDARD OF REVIEW}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par [8]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \'93Even though the overall review [of denial of preliminary injunction] is for an abuse of discretion, [t]he district court\rquote s interpretation of the underlying legal principles . . . is subject to de novo review and a district court abuses its discretion when it makes an error of law.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Sananap v. Cyfred, Ltd.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2009 Guam 13 \'b6 13 (internal citations and quotations omitted).}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 A reviewing court will reverse the trial court\rquote s denial of a preliminary injunction where the trial court abused its discretion or based its decision on an erroneous legal standard or on clearly erroneous findings of fact.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Id.; see also San Miguel v. Dep\rquote t. of Pub. Works}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 3 \'b6 18; }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Church of Christ in Hollywood v. Super. Ct.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 121 Cal. Rptr. 2d 810, 815 (A}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 trial court abuses its discretion only when it has exceeded the bounds of reason or contravened the uncontradicted evidence.).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 IV. ANALYSIS}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par A.}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 }{\field{\*\fldinst {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SEQ CHAPTER \\h \\r 1}}{\fldrslt }}{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Denial of Temporary Restraining Order}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [9]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In order to grant{\*\bkmkstart SR_2132}{\*\bkmkend SR_2132} a preliminary injunction{\*\bkmkstart SR_2135}{\*\bkmkend SR_2135}, the moving party must show both irreparable injury and likelihood of success on the merits.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Hongkong and Shanghai Banking Corp., Ltd., v. Kallingal}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2005 Guam 13 \'b6 18.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court\rquote s decision to grant or deny a preliminary injunction is reviewed for abuse of discretion.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Sananap}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2009 Guam 13 \'b6 13.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par However, if a [trial] court\rquote s ruling rests solely on a premise as to the applicable rule of law, {\*\bkmkstart SDU_13}{\*\bkmkend SDU_13}and the facts are established }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 or of no controlling relevance}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 Although the parties seem to bicker in their briefs about subtle differences in the facts, these differences are \'93 of no controlling relevance\'94 to this court\rquote s review. }{\i\insrsid14242396 Sananap}{\insrsid14242396 , 2009 Guam 13 \'b6 13.}}}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , the court may undertake plenary review of [the] issues rather than limit its review in a case of this kind to abuse of discretion. }{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Carlson v. Guam Telephone Auth.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2002 Guam 15 \'b6 15 n.3, (quoting }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Gorbach v. Reno}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 219 F.3d 1087, 1091 (9th Cir. 2000)) (internal quotations marks omitted) (emphasis added).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [10]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In this case, the trial court analyzed and construed the relevant statutes \endash namely 5 GCA \'a7 8115 and 10 GCA \'a7 12436 \endash and, based on its legal interpretation, ruled that Dr. Sule could not show irreparable harm.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Appellant\rquote s Excerpts of Record (\'93ER\'94) at 16-23 (Dec. & Order, Mar. 22, 2010).}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Indeed, there are few if any relevant facts that are in dispute, and the trial court\rquote s ruling was largely one of law.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The only truly relevant fact necessary for the trial court to rule on the application for the temporary restraining order was whether the Dental Board\rquote s initial hearing on Disciplinary Case No. 09-01 was adequately noticed.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Board never contested the fact that it failed to give proper notice according to the Open Government Law, and all actions taken at that improperly-noticed meeting were voided by the Dental Board.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ER at 19-20 (Dec. & Order); }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SER at 79 (Ltr. from Atty. Highsmith to Atty. Moylan).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [11]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This fact being uncontested, the trial court\rquote s analysis was, for the most part, legal construction.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Accordingly, this court will review the trial court\rquote s analysis }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 de novo}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 .}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See Sananap}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2009 Guam 13 \'b6 13 (in reviewing the grant or denial of a preliminary injunction, the trial court\rquote s interpretation of the underlying legal principles is subject to }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 de novo}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 review and the trial court abuses its discretion when it makes an error of law).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Furthermore, even though the trial court analyzed the pertinent statutes with a focus on whether Dr. Sule can show irreparable harm, the focus is more aptly placed on the second prong of the test \endash i.e., Dr. Sule\rquote s likelihood of success on the merits.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [12]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 A determination of irreparable harm typically focuses on categories of harm that do not easily lend themselves to monetary compensation.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See, e.g.}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ,}{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 DVD Copy Control Ass\rquote n, Inc. v. Kaleidescope, Inc.}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 97 Cal. Rptr. 3d 856, 876 (Cal. Ct. App. 2009) (\'93}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In other words, to say that the harm is irreparable is simply another way of saying that pecuniary compensation would not afford adequate relief or that it would be extremely difficult to ascertain the amount that would afford adequate relief.\'94).}{ \cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 }{\insrsid14242396\charrsid4270839 Some factors that would more appropriately have been part of an \'93irreparable harm \'94 discussion relative to Dr. Sule\rquote s claim would be potential loss of business or incalculable reputation damage as a result of either the Open Government Law violation or the alleged \'93executive session\'94 violation. As far as is revealed in the record, absent a transcript of the hearing on the TRO application, Dr. Sule did not put such facts before the trial court.}{\fs24\insrsid14242396\charrsid4270839 }}}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Although the trial court called its analysis one of irreparable harm, in reality, it functioned more as an analysis of the \'93 likelihood of success\'94 factor.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Because a movant for preliminary injunction would have to establish both factors, the trial court \rquote s decision can be upheld if this court finds based on its }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 de novo}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 interpretation of the relevant statutes that Dr. Sule has not shown that he would likely succeed on the merits.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [13]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 One California court has explaine d the scope of appellate review of a trial court\rquote s decision not to grant a restraining order in this way:}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \ql \li720\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [W]hen a trial court }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 denies}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 an }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 application}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 for a }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 restraining}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 order}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , \'93it implicitly determines that the plaintiffs have failed to satisfy either or both of the \lquote interim harm \rquote and \lquote likelihood of prevailing on the merits\rquote factors. On [appellate review], the question becomes whether the trial court abused its discretion in ruling on }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 both}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 factors. Even if the appellate court finds that the trial court abused its discretion as to one of the factors, it nevertheless may affirm the trial court\rquote s order if it finds no abuse of discretion as to the other.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par Church of Christ in Hollywood}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 121 Cal. Rptr. 2d at 815 (citation omitted) (emphasis in original).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 As discussed below, we find that Dr. Sule failed to show a likelihood of success on the merits, even though the trial court declined to consider this prong of the analysis, focusing only on the irreparable harm factor.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See, e}{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 .g.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ,}{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Hart v. Hart}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 11 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \'b6}{ \b\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 15 (ruling that this court may affirm the trial court\rquote s reasoning under any theory supported by the record); }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 see also}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Chen v. Bd. of Trs. of Guam Mem\rquote l}{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Hosp. Auth.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 1986 WL 68521 a t *3 (D. Guam App. Div. 1986) (\'93This panel can uphold that}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 decision by the trial court on any ground which finds support in the record.\'94). }{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 1.}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Voiding of the Dental Board\rquote s Actions}{ \b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [14]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \'93}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The scope of discretion always reside s in the particular law being applied; action that transgresses the confines of the applicable principles of law is outside the scope of discretion and we call such action an abuse of discretion.\'94 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Choice-In-Educ. League v. Los Angeles Unified School Dist.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 21 Cal. Rptr. 2d 303, 307 (Cal. App. 1993) (citation omitted).}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 One of the laws the trial court was asked to apply when determining whether to grant the TRO was the Open Government Law of Guam.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Found at 5 GCA \'a7 8101 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 et seq.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , the law was put in place to c arry out the policy that public agencies serving the people of Guam shall not form public policy or decisions in secret, and that the people must \'93[remain] informed so that they may retain control over the instruments they have created.\'94}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8102 (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \'93Public agency\'94 as used in the Open Government Law includes the Dental Board.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8104 (2005); 10 GCA \'a7 12430 (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Regular meetings of the Dental Board require public notice five working days prior to the scheduled meeting, and another pu blic notice at least forty-eight hours prior to the start of the meeting.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8107(a) (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 When a violation of the Open Government Law has occurred or is threatened, any interested person may bring an action in the Superior Court for the purpose of stopping or preventing a violation or a threatened violation.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8115(a), (c) (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Any action taken at a meeting held in violation of the Open Government Law \'93shall be void and of no effect.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8114 (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par [15]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Board voted upon the specification of charges against Dr. Sule (Disciplinary Case No. 08-01) during its November 19, 2008 regular meeting \endash a meeting the Dental Board conceded was not noticed in compliance with the Open Government Law.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ER at 1-2 (Finds. Fact & Concl. L., Dec. 9, 2009).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 By stipulation of the Dental Board, the hearing officer entered in his findings of fact and conclusions of law that the November 19, 2008 meeting violated the notice provisions of the Open Government Law.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Id.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The actions of the Dental Board were voided and the charges dismissed without prejudice.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Id.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 at 3.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [16]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Board later vot ed to recharge Dr. Sule for the alleged infractions that formed the basis of Disciplinary Case No. 08-01.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This vote took place at a regular meeting of the Dental Board on September 16, 2009 \endash Disciplinary Case No. 09-01.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Appellees\rquote Br. at 8 (July 29, 2010).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule does not claim any notice problem with this meeting.}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 As will be discussed below, Dr. Sule does ask that actions taken at this meeting be voided based on his \'93executive session\'94 argument and not on any violation of the Open Government Law.}}}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The first hearing on Disciplinary Case No. 09-01 was held on November 4, 2009, and after a notice violation for that meeting was brought to light, the Dental Board took it upon itself to void the actions taken at that meetin g (such as the issuance of a scheduling order) and planned to \'93start again from scratch\'94 at a future hearing that complied with the Open Government Law notice provisions.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ER at 19-20 (Dec. & Order); }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SER at 79 (Ltr. from Atty. Highsmith to Atty. Moylan).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court did not need to make a factual finding as to whether any meetings occurred in violation of the Open Government Law \endash this was conceded by the Dental Board.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Apart from the November 19, 2008 and November 4, 2009 meetings, no other improperly-noticed meetings concerning action against Dr. Sule took place, and all actions taken at the improper meetings were voided.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 There was similarly nothing left for the trial court to void, and the only questions remaining were whether Dr. Sule could establish, based on the relevant law, that he would suffer irreparable harm without the issuance of a TRO and that he would likely succeed on the merits of his underlying complaint. }{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [17]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule disagrees with the trial court\rquote s ruling that it could not render the relief sought pursuant to the Open Government Law because that claim had been rendered moot by the Dental Board voiding the actions it took at the November 4, 2009 meeting.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule believes the Open Government Law gives him a statutory right to injunctive relief once a violation is found, and the trial court has a duty to retain jurisdiction over the Dental Board in this matter for a period of one year with reports twice annually regarding the Dental Board\rquote s compliance with the law.}{ \cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \qj \li0\ri0\sa120\keepn\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\fs20\cf1\insrsid14242396 \tab }{\cs16\fs20\super\insrsid14242396\charrsid11807957 \chftn }{\fs20\cf1\insrsid14242396\charrsid11807957 }{\cf1\insrsid14242396 }{ \fs20\cf1\insrsid14242396\charrsid2100024 The pertinent section of the Open Government Law that Dr. Sule argues supports his application for a TRO }{\fs20\cf1\insrsid14242396 is 5 GCA \'a7 8115, which reads: \par }\pard \qj \li720\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid14242396 {\fs20\cf1\insrsid14242396\charrsid2100024 \'a7 8115. Penalties and Court Jurisdiction. \par }\pard \qj \fi720\li720\ri720\sa120\widctlpar\tx3570\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid14242396 {\fs20\cf1\insrsid14242396\charrsid2100024 (a) The Superior Court shall have jurisdiction to enforce any action brought as a re sult of a violation of this Chapter. Any person shall have standing to sue for the enforcement of this Chapter. \par }\pard \qj \li720\ri720\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid14242396 {\fs20\cf1\insrsid14242396 \tab }{\fs20\cf1\insrsid14242396\charrsid2100024 . . . \par }\pard \qj \fi720\li720\ri720\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin720\itap0\pararsid14242396 {\fs20\cf1\insrsid14242396\charrsid2100024 (c) Any interested persons may commence an action by mandamus, injunction or declaratory relief for the purpose of stepping or preventing a violation or threatened violation of this Chapter by members of an agency or to determine the applicability of this Chapter to actions or threatened future action of an agency. \par (d) In each suit brought under the Chapter, the court shall file a written Findings of Fact and Conclusions of Law and final judgment which shall also be recorded in the minutes of body involved. \par (e) The court shall permanently enjoin any person adjudged to have violated this Chapter from further violating this Chapter. Each separate action taken which is not in accordance with this Chapter shall constitute a separate violation. \par (f) The final judg ment or decree in each suit shall state that the court shall retain jurisdiction over the parties and subject matter for a period of one (1) year from date of entry and the court shall order the defendants to report in writing twice annually to the court of their compliance with this Chapter. \par }\pard \qj \li0\ri720\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin720\lin0\itap0\pararsid14242396 {\fs20\cf1\insrsid14242396\charrsid2100024 5 GCA \'a7 8115}{\fs20\cf1\insrsid14242396 (2005)}{\fs20\cf1\insrsid14242396\charrsid2100024 .}{ \fs20\insrsid14242396\charrsid2100024 }}}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The procedural posture of the case before the trial court is significant in understanding the relief that could be granted.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The case was not before the trial court on an application for permanent injunction, or on the GRCP 12(b)(6) motion to dismiss, or on the other relief sought in any of the substantive claims in the complaint.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 It was merely before the trial court on Dr. Sule\rquote s application for a TRO and preliminary injunction.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Thus, at that juncture, the trial court was simply determining whether the preliminary and temporary protection of a TRO or preliminary injunction was necessary in order to protect Dr. Sule from irreparable injury in the intervening time before the trial court could address the merits of the underlying complaint.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This court has expressed that \'93[t]he purpose of a preliminary injunction is always to prevent irreparable injury so as to preserve the court\rquote s ability to render a meaningful decision on the merits.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Tumon Partners, LLC v. Shin}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 15 \'b6 22 (internal citation and quotation omitted).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [18]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 When analyzing 5 GCA \'a7 8115 to determine whether Dr. Sule would likely succeed on the merits of his Open Government Law claim, we evaluate the claim itself and the relief sought.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In his complaint, Dr. Sule sought to have the actions of the Dental Board during its November 4, 2009 hearing voided, pursuant to 5 GCA \'a7 8114.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SER at 9 (Verified Compl.).}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court found that it could not grant the relief requested because the relief had already been granted by the Dental Board ; thus, this claim was moot.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ER at 20 (Dec. & Order).}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This finding does not amount to an abuse of discretion by the trial court.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 A trial court may be found to have abused its discretion only when it has exceeded the bounds of reason or contravened the uncontradicted evidence.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Church of Christ in Hollywood}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 121 Cal. Rptr. 2d at 815.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 A finding of inability to render relief that has already happened neither e xceeds the bounds of reason nor contravenes the evidence in this case.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [19]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Counsel for the Dental Board represented that all action taken by the Dental Board at the November 4 meeting were declared null and void, and this decision occurred prior to the matter being brought before the trial court.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Generally, a cause of action is moot where the precise relief sought has already been achieved by the time of trial.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See, e.g.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ,}{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Donald v. Caf\'e9 Royale, Inc.}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 266 Cal. Rptr. 804, 814 (Cal. Ct. App. 1990).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule argues that this case falls within the exception to the mootness doctrine in that the violation is capable of repetition yet evading review.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Appellant\rquote s Br. at 15 (June 29 2010); }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 see also Guam Election Comm\rquote n v. Responsible Choices for All Adults}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2007 Guam 20 \'b6\'b6 31-32.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 However, the protections of the Open Government Law and the jurisdiction it gives to the trial court in the event there is any future violation by the Dental Board makes such violation quite capable of review.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Therefore, Dr. Sule has not shown that he would likely succeed on the merits of this claim, which supports the trial court\rquote s decision to deny Dr. Sule\rquote s application for a TRO.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Moreover, as one court has expressed, \'93 [a]n injunction cannot issue in a vacuum based on the proponents\rquote fear about something that may happen in the future.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Nelson v. Pearson Ford Co.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ,}{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 112 Cal. Rptr. 3d 607, 637 (Cal. App. 2010) (citations and quotations omitted).}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [20]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Because the phase of the litigation that is now on review o nly deals with the denial of the TRO, and does not encompass remaining causes of action in the complaint or the GRCP 12(b)(6) motion to dismiss, Dr. Sule may still litigate the remaining substantive issues before the trial court, including whether he is entitled to the additional protections of the Open Government Law \endash namely the permanent injunction, one-year jurisdiction of the trial court, and biannual reporting of compliance.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 2.}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Criteria for Granting a TRO }{ \b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [21]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 It is well established that to obtain a TRO or preliminary injunction, Dr. Sule must show both irreparable harm and likelihood of success on the merits.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Hongkong and Shanghai Banking Corp.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2005 Guam 13 \'b6 18.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule \rquote s preferred reading of 5 GCA \'a7 8115(e) is that an injunction shall automatically issue to any agency once it is shown that the agency had violated the Open Government Law, and that this mandate replaces the ordinary inquiry applied to the determination of whether to grant a TRO.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This reading, however, is not supported by the plain text of 5 GCA \'a7 8115(e).}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See generally}{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Guam Greyhound, Inc. v. Brizill}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 13 \'b6 29.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [22]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The language in 5 GCA \'a7 8115(e) that the trial court \'93 shall permanently enjoin\'94 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 refers to a person who is \'93adjudged\'94 to have violated the Open Government Law, which implies that there must have been an adjudication of that fact. 5 GCA \'a7 8115(e) (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Plainly, a fact is \'93adjudged\'94 when it is ruled upon judicially.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Black\rquote s Law Dictionary, 9th Ed. (2009).}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This language follows subsection (d), which directs the court to file a Findings of Fact and Conclusions of Law along with a final judgment.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8115(d) (2005).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The mandatory \'93shall\'94 relative to the permanent injunction comes into effect after adjudication is had and after the filing of a Findings of Fact and Conclusions of Law along with a final judgment.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The text of the statute does not illustrate, as Dr. Sule suggests, that the legislature intended the language in section 8115(e) to supplant the well established factors for granting a TRO.} {\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The application for TRO and the adjudication of the substantive claims involving the violation of the Open Government Law are two separate procedural events. }{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [23]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The provisions of 5 GCA \'a7 8115 deal with standing to commence an action (subsection (a)), the types of actions that may be brought (subsection (c)), and the consequences of being adjudged to have violated the law (subsections (d), (e), and (f)).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 5 GCA \'a7 8115.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 They do not address the pursuit of a TRO; therefore, there is no apparent legislative mandate preempting the ordinary civil procedure rules and applicable case law on the issue.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court, as such, did not err in applying the \'93irreparable harm and likelihood of success on the merits\'94 inquiry to Dr. Sule\rquote s application for TRO. }{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par {\listtext\pard\plain\b\cf1\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \hich\af0\dbch\af0\loch\f0 3.\tab}}\pard \ql \li0\ri0\nowidctlpar\faauto\ls1 \pnrdate-1494037630\pnrstart0\pnrxst2\pnrxst0\pnrxst0\pnrxst0\pnrxst46\pnrxst0\pnrstop6\pnrstart1\pnrrgb1\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrrgb0\pnrstop9\pnrstart2\pnrnfc0\pnrnfc4\pnrnfc2\pnrnfc0\pnrnfc4\pnrnfc2\pnrnfc0 \pnrnfc4\pnrnfc2\pnrnfc0\pnrnfc0\pnrnfc3\pnrnfc0\pnrnfc0\pnrnfc0\pnrnfc0\pnrnfc0\pnrnfc0\pnrstop18\pnrstart3\pnrpnbr3\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0 \pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrpnbr0\pnrstop36\rin0\lin0\itap0\pararsid14242396 { \b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Construction of 10 GCA \'a7 12436 }{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\faauto\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [24]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Guam law governing the practice of dentistry is found at 10 GCA \'a7 12400 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 et seq.}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , and is known as the Dental Practice Act.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 An additional argument Dr. Sule raises in his complaint, and in his two memoranda supporting his application for TRO, is that the Dental Board violated and continues to violate the Dental Practice Act by not holding disciplinary proceedings in executive session, which he claims is required by 10 GCA \'a7 12436(b).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SER at 5-6 (Verified Compl.); SER at 26-27 (Mem. }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Supporting TRO & Permanent Inj.,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Nov. 27, 2009); SER at 47 (Supp. Mem. }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Supporting TRO & Permanent Inj.,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dec. 7, 2009).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In its Decision and Order on Dr. Sule\rquote s application for TRO, the tr ial court analyzed whether this section of the Dental Practice Act supported a finding that Dr. Sule would suffer irreparable harm without the issuance of a TRO.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [25]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Dental Practice Act provides that: }{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \ql \li720\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The Board shall comply with the requirements of the Open Government Law (P.L. 13-35) but when the Board is preparing examinations, grading examinations, discussing the eligibility of a person to be licensed to practice dentistry }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 or reviewing evidence obtained at a hearing for disciplinary action}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 the Board shall be in executive session and may exclude the press and members of the public.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 10 GCA \'a7 12436(b) (emphasis added).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Dr. Sule contends that the language \'93}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 or reviewing evidence obtained at a hearing for disciplinary action\'94 means that all the meetings or hearings dealing with disciplinary action must take place in executive session, and that the continued practice of the Dental Board to address his disciplinary matter in open meetings rather than executive session constitut es irreparable harm.}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 }{\insrsid14242396\charrsid5070153 Dr. Sule also prays in his complaint that the }{\insrsid14242396 trial }{ \insrsid14242396\charrsid5070153 court void }{\insrsid14242396 the specification of charges voted upon by the Dental Board in an open meeting on}{\insrsid14242396\charrsid5070153 September}{\insrsid14242396 16, 2009 (}{\insrsid14242396\charrsid5070153 Disciplinary Case No. 09-01}{\insrsid14242396 ) because the vote was not taken in executive session. This relief, however, is part of the underlying complaint and not the application for TRO presently on review. }}}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SER at 5-6 (Verified Compl.); SER at 26-27 (Mem. }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Supporting TRO & Permanent Injunction}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ); SER at 47 (Supp. Mem. }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Supporting TRO & Permanent Injunction}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ); Appellant\rquote s Br. at 18-23.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [26]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court applied the \'93plain meaning\'94 rule of statutory construction and concluded that the foregoing statute does not require the Dental Board to conduct disciplinary hearings in closed executive session.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 ER at 21 (Dec. & Order).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court went on to state that, as a consequence, Dr. Sule can show no legal basis for claiming irreparable harm.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Id.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Implied in this finding is a determination tha t Dr. Sule also cannot show a likelihood of success on the merits, although the trial court did not actually reach this step of the TRO analysis.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Nevertheless, this court can affirm the trial court, if the record supports this implicit determination.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Church of Christ in Hollywood}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 121 Cal. Rptr. 2d at 815.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [27]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This court has stated that:}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \ql \li720\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [i] f a statute is unambiguous, then the judicial inquiry into the meaning of the statute is complete. }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 People v. Quichocho,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 1997 Guam 13 \'b6 5. . . .}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The inquiry into whether a statute is ambiguous begins with looking at the plain meaning of the language in question, and, when looking at the language, the court\rquote s task is to determine if the language is plain and unambiguous. }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Aguon v. Gutierrez,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 2002 Guam 14 \'b6 6.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Guam Greyhound, Inc.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 13 \'b6 29.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [28]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Because the issue is one of statutory construction, this court \rquote s review is }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 de novo}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 .}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See Sananap}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2009 Guam 13 \'b6 13.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court will be found to abuse its discretion if it makes a clear error of law.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Id.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In its decision and order the trial court stated:}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \ql \li720\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin720\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The clause specifically uses the past tense \endash \'93 evidence obtained at a hearing\'94 \endash to make clear that the executive session requirement occurs after the disciplinary hearing has already taken place.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Nothing within the statute suggests that the disciplinary hearing itself should be conducted within a closed, executive session.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This conclusion is further supported by the legislative intent behind the Open Government Law that, with limited exceptions, requires that \'93Every meeting of a public agency shall be open to the public.\'94 5 GCA \'a7 8103.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par ER at 20-21 (Dec. & Order).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The provisions of 10 GCA \'a7 12436(b) are not ambiguous, and there is no need to look beyond the language of the statute itself.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 See}{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Guam Greyhound, Inc.}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 13 \'b6 29, citing }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 People v. Quichocho,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 1997 Guam 13 \'b6 5 (\'93If a statute is unambiguous, then the judicial inquiry into the meaning of the statute is complete.\'94).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Upon }{ \i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 de novo}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 review, we agree with the trial court\rquote s reasoning and construction of }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 the Dental Practice Act.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Its finding that the statute cannot form a basis for claiming irreparable harm was therefore not an abuse of discretion.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Taken one step further, this court finds that based on the plain meaning of the statute, Dr. Sule also cannot show a likelihood of success on the merits of his \'93executive session\'94 claim.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 B.}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The }{ \b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Enforcement of Proper Government Spending Act}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [29]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The application that was before the trial court, and on which the decision and order appealed from is based, was for a temporary restraining order.}{\cs16\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \chftn {\footnote \pard\plain \s15\qj \li0\ri0\sa120\widctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 \fs20\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\insrsid14242396 \tab }{\cs16\super\insrsid14242396 \chftn }{\insrsid14242396 }{ \insrsid14242396\charrsid220098 Although the caption of the decision and order reads \'93Decision and Order on Plaintiff\rquote s Ex Parte Application for Temporary Restraining Order and Permanent Injunction,\'94 the analysis of the decision and order itself is focused on whether to grant or deny the temporary restraining order, and not on the matter of a permanent injunction. This court has recognized that \'93[t]}{\insrsid14242396\charrsid220098 he label placed upon the order or judgment by the trial court is not conclusive.\'94 }{\i\insrsid14242396\charrsid220098 Tumon Partners}{\insrsid14242396\charrsid220098 , 2008 Guam 13 \'b6 21 (quoting }{\field\fldedit{\*\fldinst { \insrsid14242396\charrsid220098 HYPERLINK "http://web2.westlaw.com /find/default.wl?vc=0&ordoc=2017249031&rp=%2ffind%2fdefault.wl&DB=661&SerialNum=1951113888&FindType=Y&ReferencePositionType=S&ReferencePosition=640&AP=&fn=_top&rs=WLW10.08&pbc=D2156921&ifm=NotSet&mt=Westlaw&vr=2.0&sv=Split" \\t "_top" }}{\fldrslt { \i\insrsid14242396\charrsid220098 Peninsula Prop. Co. v. Santa Cruz County,}{\insrsid14242396\charrsid220098 235 P.2d 635, 640 (Cal. Dist. Ct. App. 1951)}}}{\insrsid14242396\charrsid220098 ) (internal quotation marks omitted).}{ \insrsid14242396\charrsid220098 Moreover, while }{\insrsid14242396\charrsid220098 the trial court may order the trial of the action on the merits to be advanced and consolidated with the hearing of the application for a preliminary injunction, the court did not do so here.}}}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Although the complaint also sought other relief in the form of a permanent injunction, that matter, as well as the other substantive causes of action in the complaint, should not have been before the trial court during the TRO hearing.}{ \lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [30]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 In applying the appropriate inquiry to determine whether to grant an application for restraining order, the trial court necessarily had to address, at least to some extent, the merits of the complaint itself in order to determine whether Dr. Sule has established both irreparable harm and a likelihood of success on the merits.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 However, the trial court\rquote s concern at that stage should rightfully be confined to determining whether a TRO was necessary to prevent irreparable harm to Dr. Sule \'93 so as to preserve [its] ability to render a meaningful decision on the merits.\'94}{\lang2057\langfe1033\langnp2057\insrsid14242396 {\*\bkmkstart SR_3863}{\*\bkmkend SR_3863} }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Tumon Partners, LLC}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 , 2008 Guam 15 \'b6 22 (internal citation and quotation omitted).}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 It should not be on }{\i\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 actually}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 rendering a decision on the merits.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [31]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Thus, the trial court\rquote s analyses of the Open Government Law and the Dental Practice Act, to the extent they pertain to the criteria for granting a TRO, do not exceed the scope of the task before it.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Nor do they constitute a judgment on the merits of those causes of action.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 However, inasmuch as the trial court decided the issue of Dr. Sule\rquote s taxpayer lawsuit pursuant to the Enforcement of Proper Government Spending Act \endash an analysis that was not tied to either of the prongs of the TRO analysis \endash the trial court was overreaching.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The standards for granting a restraining order go to the first two claims in Dr. Sule\rquote s complaint \endash namely the Open Government Law and the Dental Practice Act.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The taxpayer lawsuit is a cause of action that does not factor into this analysis and was therefore inappropriately reached by the trial court in its decision and order on Dr. Sule\rquote s application for TRO. }{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 V. CONCLUSION}{\b\lang2057\langfe1033\langnp2057\insrsid14242396 \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [32]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 The trial court\rquote s denial of Dr. Sule\rquote s application for a temporary restraining }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 was not an abuse of discretion.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Although the trial court characterized its denial of the TRO as a failure on the part of Dr. Sule to show irreparable harm, we find that the trial court\rquote s reasoning was actually an application of the \'93likelihood of success\'94 factor of the TRO analysis.}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Because we find that Dr. Sule\rquote s application for a TRO fails to show a likelihood of success on the merits, }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 the trial court\rquote s decision and order denying Dr. Sule\rquote s application for a TRO is }{ \b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 AFFIRMED}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 .}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [33]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 We further hold that the trial court\rquote s decision and order exceeded the scope of the TRO application by ruling on the merits of Dr. Sule\rquote s taxpayer lawsuit}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 .}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{ \lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 As such, we }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 VACATE}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 the portion of the decision and order relative to the Enforcement of Proper Government Spending Act claim.}{\lang2057\langfe1033\langnp2057\insrsid14242396 \par }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }{\b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 [34]}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 This matter is }{ \b\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 REMANDED}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 for the trial court to determine the substantive causes of action in Dr. Sule\rquote s complaint as well as the pending GRCP 12(b)(6) motion to dismiss,}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 consistent with this Opinion. \par }{\field{\*\fldinst {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 SEQ CHAPTER \\h \\r 1}}{\fldrslt }}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 __________________}{\ul\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 /s/}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 _______________}{\lang2057\langfe1033\langnp2057\insrsid14242396 }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 _________________}{ \ul\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 /s/}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 _________________ \par F. PHILIP CARBULLIDO}{\lang2057\langfe1033\langnp2057\insrsid14242396 \tab \tab \tab \tab }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 KATHERINE A. MARAMAN \par Associate Justice}{\lang2057\langfe1033\langnp2057\insrsid14242396 \tab \tab \tab \tab \tab }{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 Associate Justice \par }\pard \ql \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 \par }\pard \qc \li0\ri0\nowidctlpar\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid14242396 {\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 _________________}{\ul\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 /s/}{\lang2057\langfe1033\langnp2057\insrsid14242396\charrsid14242396 _________________ \par ROBERT J. TORRES \par Chief Justice \par }}