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{\f37\fbidi \fswiss\fcharset0\fprq2{\*\panose 020f0502020204030204}Calibri;}{\f38\fbidi \fswiss\fcharset0\fprq2{\*\panose 020b0604030504040204}Tahoma;}{\f41\fbidi \froman\fcharset0\fprq2{\*\panose 02020803070505020304}Times New Roman Bold;}
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{\fhimajor\f31502\fbidi \froman\fcharset0\fprq2{\*\panose 02040503050406030204}Cambria;}{\fbimajor\f31503\fbidi \froman\fcharset0\fprq2{\*\panose 02020603050405020304}Times New Roman;}
{\flominor\f31504\fbidi \froman\fcharset0\fprq2{\*\panose 02020603050405020304}Times New Roman;}{\fdbminor\f31505\fbidi \froman\fcharset0\fprq2{\*\panose 02020603050405020304}Times New Roman;}
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{\fhimajor\f31535\fbidi \froman\fcharset186\fprq2 Cambria Baltic;}{\fhimajor\f31536\fbidi \froman\fcharset163\fprq2 Cambria (Vietnamese);}{\fbimajor\f31538\fbidi \froman\fcharset238\fprq2 Times New Roman CE;}
{\fbimajor\f31539\fbidi \froman\fcharset204\fprq2 Times New Roman Cyr;}{\fbimajor\f31541\fbidi \froman\fcharset161\fprq2 Times New Roman Greek;}{\fbimajor\f31542\fbidi \froman\fcharset162\fprq2 Times New Roman Tur;}
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{\flominor\f31554\fbidi \froman\fcharset178\fprq2 Times New Roman (Arabic);}{\flominor\f31555\fbidi \froman\fcharset186\fprq2 Times New Roman Baltic;}{\flominor\f31556\fbidi \froman\fcharset163\fprq2 Times New Roman (Vietnamese);}
{\fdbminor\f31558\fbidi \froman\fcharset238\fprq2 Times New Roman CE;}{\fdbminor\f31559\fbidi \froman\fcharset204\fprq2 Times New Roman Cyr;}{\fdbminor\f31561\fbidi \froman\fcharset161\fprq2 Times New Roman Greek;}
{\fdbminor\f31562\fbidi \froman\fcharset162\fprq2 Times New Roman Tur;}{\fdbminor\f31563\fbidi \froman\fcharset177\fprq2 Times New Roman (Hebrew);}{\fdbminor\f31564\fbidi \froman\fcharset178\fprq2 Times New Roman (Arabic);}
{\fdbminor\f31565\fbidi \froman\fcharset186\fprq2 Times New Roman Baltic;}{\fdbminor\f31566\fbidi \froman\fcharset163\fprq2 Times New Roman (Vietnamese);}{\fhiminor\f31568\fbidi \fswiss\fcharset238\fprq2 Calibri CE;}
{\fhiminor\f31569\fbidi \fswiss\fcharset204\fprq2 Calibri Cyr;}{\fhiminor\f31571\fbidi \fswiss\fcharset161\fprq2 Calibri Greek;}{\fhiminor\f31572\fbidi \fswiss\fcharset162\fprq2 Calibri Tur;}
{\fhiminor\f31575\fbidi \fswiss\fcharset186\fprq2 Calibri Baltic;}{\fhiminor\f31576\fbidi \fswiss\fcharset163\fprq2 Calibri (Vietnamese);}{\fbiminor\f31578\fbidi \froman\fcharset238\fprq2 Times New Roman CE;}
{\fbiminor\f31579\fbidi \froman\fcharset204\fprq2 Times New Roman Cyr;}{\fbiminor\f31581\fbidi \froman\fcharset161\fprq2 Times New Roman Greek;}{\fbiminor\f31582\fbidi \froman\fcharset162\fprq2 Times New Roman Tur;}
{\fbiminor\f31583\fbidi \froman\fcharset177\fprq2 Times New Roman (Hebrew);}{\fbiminor\f31584\fbidi \froman\fcharset178\fprq2 Times New Roman (Arabic);}{\fbiminor\f31585\fbidi \froman\fcharset186\fprq2 Times New Roman Baltic;}
{\fbiminor\f31586\fbidi \froman\fcharset163\fprq2 Times New Roman (Vietnamese);}}{\colortbl;\red0\green0\blue0;\red0\green0\blue255;\red0\green255\blue255;\red0\green255\blue0;\red255\green0\blue255;\red255\green0\blue0;\red255\green255\blue0;
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\mdefJc1\mwrapIndent1440\mintLim0\mnaryLim1}{\info{\title 2018 Guam 9}{\subject Port Auth. of Guam v. CSC (Javelosa), CVA15-025}{\author Supreme Court of Guam}{\operator Gloria J. Duenas-Cruz}{\creatim\yr2018\mo7\dy26\hr11\min47}
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\ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7036651 \chftnsep 
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\insrsid7036651 \chftnsep 
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\insrsid7036651 \chftnsepc 
\par }}\ltrpar \sectd \ltrsect\psz1\linex0\headery1440\endnhere\titlepg\sectdefaultcl\sectrsid11948445\sftnbj {\headerl \ltrpar \pard\plain \ltrpar\s15\ql \li0\ri0\widctlpar\tqc\tx4320\tqr\tx8640\wrapdefault\faauto\rin0\lin0\itap0 \rtlch\fcs1 
\af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1908320 
\par }}{\headerr \ltrpar \pard\plain \ltrpar\s15\ql \li0\ri0\widctlpar\tqr\tx9360\wrapdefault\faauto\rin0\lin0\itap0\pararsid11948445 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\fs20\insrsid13766510 Port}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid11943951  Auth. of Guam v. Civil Serv. Comm\rquote n (Javelosa)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5319659 , 201}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid10834975 8}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5319659  Guam }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid10633422 9}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5319659 , Opinion          \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid5319659\charrsid15748452 Page }{\field{\*\fldinst {\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5319659\charrsid15748452  PAGE }}{\fldrslt {\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\lang1024\langfe1024\noproof\insrsid11228269 17}}}\sectd \ltrsect
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\par }\pard \ltrpar\s15\ql \li0\ri0\widctlpar\brdrb\brdrs\brdrw10\brsp20 \tqr\tx9360\wrapdefault\faauto\rin0\lin0\itap0\pararsid11948445 {\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5319659 
\par }\pard \ltrpar\s15\ql \li0\ri0\widctlpar\tqr\tx9360\wrapdefault\faauto\rin0\lin0\itap0\pararsid11948445 {\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5319659\charrsid15748452 
\par }}{\footerl \ltrpar \pard\plain \ltrpar\s27\ql \li0\ri0\widctlpar\tqc\tx4680\tqr\tx9360\wrapdefault\faauto\rin0\lin0\itap0 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1908320 
\par }}{\footerr \ltrpar \pard\plain \ltrpar\s27\ql \li0\ri0\widctlpar\tqc\tx4680\tqr\tx9360\wrapdefault\faauto\rin0\lin0\itap0 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1908320 
\par }}{\headerf \ltrpar \pard\plain \ltrpar\s15\ql \li0\ri0\widctlpar\tqc\tx4320\tqr\tx8640\wrapdefault\faauto\rin0\lin0\itap0 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1908320 
\par }}{\footerf \ltrpar \pard\plain \ltrpar\s27\qr \li0\ri0\widctlpar\tqc\tx4680\tqr\tx9360\wrapdefault\faauto\rin0\lin0\itap0\pararsid6625093 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 
\af0 \ltrch\fcs0 \fs20\insrsid6625093\charrsid6625093 
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{\*\pnseclvl5\pndec\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl6\pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl7\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl8
\pnlcltr\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}{\*\pnseclvl9\pnlcrm\pnstart1\pnindent720\pnhang {\pntxtb (}{\pntxta )}}\pard\plain \ltrpar
\s3\qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\outlinelevel2\adjustright\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \ab\af0\afs27\alang1025 \ltrch\fcs0 \b\fs27\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \ab0\af0\afs28 
\ltrch\fcs0 \b0\fs28\insrsid4661578\charrsid9720777 
\par 
\par 
\par 
\par }{\rtlch\fcs1 \ab0\af0\afs28 \ltrch\fcs0 \fs28\insrsid4661578\charrsid9720777 
\par IN THE SUPREME COURT OF GUAM
\par }\pard\plain \ltrpar\qc \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\b\insrsid4661578\charrsid9720777 
\par 
\par 
\par }{\rtlch\fcs1 \ab\af0\afs28 \ltrch\fcs0 \b\fs28\lang1033\langfe0\langfenp0\insrsid4661578 PORT AUTHORITY OF GUAM}{\rtlch\fcs1 \ab\af0\afs28 \ltrch\fcs0 \b\fs28\lang1033\langfe0\langfenp0\insrsid4661578\charrsid9720777 ,
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8158243 Petitioner-Appellee}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578\charrsid9720777 ,
\par 
\par }{\rtlch\fcs1 \af0\afs28 \ltrch\fcs0 \b\fs28\insrsid4661578\charrsid9720777 v.
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578\charrsid9720777 
\par }\pard\plain \ltrpar\s3\qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\outlinelevel2\adjustright\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \ab\af0\afs27\alang1025 \ltrch\fcs0 \b\fs27\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\rtlch\fcs1 \ai\af0\afs28 \ltrch\fcs0 \fs28\insrsid4661578 CIVIL SERVICE COMMISSION}{\rtlch\fcs1 \ab0\af0\afs28 \ltrch\fcs0 \fs28\insrsid4661578\charrsid9720777 ,
\par }\pard\plain \ltrpar\qc \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8158243 
Respondent-Appellant}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11563295 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578 
\par 
\par }{\rtlch\fcs1 \af0\afs28 \ltrch\fcs0 \b\fs28\insrsid4661578\charrsid10444599 and 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578 
\par }\pard\plain \ltrpar\s21\qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \f2\fs18\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \b\caps\f41\fs28\insrsid4661578\charrsid4661578 JOSETTE JAVELOSA}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\f0\fs28\insrsid4661578\charrsid6238783 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid4661578 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid8158243 Real Party in Interest-Appellant}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid4661578 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid4661578\charrsid6238783 
\par }\pard\plain \ltrpar\qc \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid4661578\charrsid9720777 
\par 
\par Supreme Court Case No.:  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578 CVA15-025}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578\charrsid9720777 
\par Superior Court Case No.:  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578 SP0151-14}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578\charrsid9720777 
\par 
\par 
\par }\pard\plain \ltrpar\s3\qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\outlinelevel2\adjustright\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \ab\af0\afs27\alang1025 \ltrch\fcs0 \b\fs27\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\rtlch\fcs1 \ab0\af0\afs28 \ltrch\fcs0 \fs28\insrsid4661578\charrsid9720777 OPINION
\par }\pard\plain \ltrpar\qc \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid4661578 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578 
\par }{\rtlch\fcs1 \af0\afs28 \ltrch\fcs0 \b\fs28\insrsid11863435 Filed:  July 26, 2018}{\rtlch\fcs1 \af0\afs28 \ltrch\fcs0 \b\fs28\insrsid11863435\charrsid11863435 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4661578\charrsid9720777 
\par }{\rtlch\fcs1 \ab\af0\afs28 \ltrch\fcs0 \b\fs28\insrsid4661578\charrsid9720777 Cite as: 201}{\rtlch\fcs1 \ab\af0\afs28 \ltrch\fcs0 \b\fs28\insrsid10834975 8}{\rtlch\fcs1 \ab\af0\afs28 \ltrch\fcs0 \b\fs28\insrsid4661578\charrsid9720777  Guam }{\rtlch\fcs1 
\ab\af0\afs28 \ltrch\fcs0 \b\fs28\insrsid10633422 9}{\rtlch\fcs1 \af0\afs28 \ltrch\fcs0 \fs28\insrsid4661578\charrsid9720777 
\par }\pard \ltrpar\qc \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid10570427 {\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid10570427 
\par }\pard\plain \ltrpar\s21\ql \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10570427 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \f2\fs18\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \f0\fs24\insrsid10570427\charrsid1182043 
\par }\pard \ltrpar\s21\qc \li0\ri0\widctlpar\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0\itap0\pararsid10570427 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid10570427\charrsid1182043 Appeal from the Superior Court of Guam
\par Argued and submitted on }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid6238783 August 19}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid6423234 , 2016}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \f0\fs24\insrsid10570427\charrsid1182043 
\par }\pard\plain \ltrpar\ql \li0\ri0\widctlpar\tqc\tx4680\tx8560\wrapdefault\faauto\rin0\lin0\itap0\pararsid10570427 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid10570427\charrsid1182043 \tab Hag\'e5t\'f1a, Guam\tab 
\par }\pard \ltrpar\qc \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid10570427 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \lang4105\langfe1033\langnp4105\insrsid10570427\charrsid1182043 
\par }\pard \ltrpar\ql \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid10570427 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid10570427\charrsid1182043 
\par }\pard \ltrpar\ql \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid14576612 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf6\insrsid14576612\charrsid1182043 
\par }\pard \ltrpar\qj \li0\ri0\widctlpar\tx3240\wrapdefault\faauto\rin0\lin0\itap0\pararsid12867474 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf6\lang4105\langfe1033\langnp4105\insrsid15879673 \page }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf6\lang4105\langfe1033\langnp4105\insrsid15879673\charrsid1182043 
\par \ltrrow}\trowd \irow0\irowband0\ltrrow\ts11\trgaph108\trleft-108\trftsWidth3\trwWidth9216\trftsWidthB3\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tblrsid13848597\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol\tblind0\tblindtype3 
\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx4500\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl 
\cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx9108\pard\plain \ltrpar\ql \li0\ri0\widctlpar\intbl\wrapdefault\faauto\rin0\lin0\pararsid6238783 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597\charrsid10621312 Appearing f}{\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597\charrsid15879673 or }{\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597 Respondent-Appellant}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\ul\insrsid13848597\charrsid10621312 :}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597 \cell Appearing for Petitioner-Appellee}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\ul\insrsid13848597\charrsid15879673 :\cell }\pard\plain \ltrpar\ql \li0\ri0\widctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 \trowd \irow0\irowband0\ltrrow
\ts11\trgaph108\trleft-108\trftsWidth3\trwWidth9216\trftsWidthB3\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tblrsid13848597\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol\tblind0\tblindtype3 \clvertalt\clbrdrt\brdrtbl \clbrdrl
\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx4500\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx9108\row \ltrrow
}\trowd \irow1\irowband1\lastrow \ltrrow\ts11\trgaph108\trrh1404\trleft-108\trftsWidth3\trwWidth9216\trftsWidthB3\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tblrsid13848597\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol
\tblind0\tblindtype3 \clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx4500\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl 
\cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx9108\pard\plain \ltrpar\ql \li0\ri0\widctlpar\intbl\wrapdefault\faauto\rin0\lin0\pararsid77889 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 Thomas J. Fisher}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid13848597\charrsid15879673 Esq.
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 Fisher & Associates}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 167 E. Marine Corps Dr., Ste. 101}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 
\par Hag\'e5t\'f1a, GU 96910}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 
\par 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597\charrsid10621312 Appearing for }{\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597 Real Party in Interest-Appellant}{\rtlch\fcs1 \af0 \ltrch\fcs0 \ul\insrsid13848597\charrsid10621312 :
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 John C. Terlaje, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid13848597 Esq.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 
\par John C. Terlaje, P.C.
\par 194 Hernan Cortez Ave., Ste. 216
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 Hag\'e5t\'f1a}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 , GU 96910}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid10621312 
\par }\pard \ltrpar\ql \li0\ri0\widctlpar\intbl\wrapdefault\faauto\rin0\lin0\pararsid15427402 {\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 \cell Michael F. Phillips}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 , }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid13848597\charrsid15879673 Esq.
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 Phillips & Bordallo, P.C.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 410 W. O\rquote Brien Dr., Ste. 102}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597\charrsid15879673 
\par Hag\'e5t\'f1a, GU 96910
\par \cell }\pard\plain \ltrpar\ql \li0\ri0\widctlpar\intbl\wrapdefault\aspalpha\aspnum\faauto\adjustright\rin0\lin0 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid13848597\charrsid15879673 \trowd \irow1\irowband1\lastrow \ltrrow
\ts11\trgaph108\trrh1404\trleft-108\trftsWidth3\trwWidth9216\trftsWidthB3\trpaddl108\trpaddr108\trpaddfl3\trpaddft3\trpaddfb3\trpaddfr3\tblrsid13848597\tbllkhdrrows\tbllklastrow\tbllkhdrcols\tbllklastcol\tblind0\tblindtype3 \clvertalt\clbrdrt\brdrtbl 
\clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx4500\clvertalt\clbrdrt\brdrtbl \clbrdrl\brdrtbl \clbrdrb\brdrtbl \clbrdrr\brdrtbl \cltxlrtb\clftsWidth3\clwWidth4608\clshdrawnil \cellx9108\row 
}\pard \ltrpar\qj \li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid7042755 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \fs32\cf6\lang4105\langfe1033\langnp4105\insrsid8670213\charrsid15879673 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf6\insrsid11948445\charrsid1182043 \page }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8127920 BEFORE:  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid14576612\charrsid1182043 F. PHILIP CARBULLIDO, }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8127920 
Presiding}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid14576612\charrsid1182043  Justice; KATHERIN}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8127920 E A. MARAMAN, Associate Justice; ALBERTO E. TOLENTINO, Justice }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\insrsid8127920\charrsid8127920 Pro Tempore}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8127920 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cs19\super\insrsid8127920 \chftn {\footnote \ltrpar \pard\plain \ltrpar
\s17\qj \fi720\li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid8127920 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\cs19\fs20\super\insrsid8127920\charrsid8127920 \chftn }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8127920\charrsid8127920  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid7876370\charrsid4661578 
The signatures in this opinion reflect the titles of the Justices at the time this matter was }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8796619 argued}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8796619\charrsid4661578  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid7876370\charrsid4661578 and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8796619 submitted}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid7876370\charrsid4661578 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid7876370   }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \fs20\insrsid8127920\charrsid8127920 Chief Justice Robert J. Torres recused himself from this matter.  Associate Justice F. Philip Carbullido, as the senior member of the panel, was designated Presiding Justice.}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid4661578   }}}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8127920  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid14576612 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf6\insrsid11563295\charrsid10633422 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf6\insrsid11948445\charrsid10633422 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid14248571 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid1443628 MARAMAN, }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid15678177 J}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \b\insrsid14248571\charrsid1182043 .: 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid3168271 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [1]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7433215 
Real Party }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13048024 in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 Interest}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11943951 -Appellant}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926  Josette Javelosa}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid4661578  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 appeals the trial court\rquote s Decision and Order, which reve}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15749930 rsed the Respondent-Appellant C}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid13594102 i}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 vil Service Commission}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773 \rquote s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926  (the \'93CSC\'94) ruling in Javelosa\rquote s adverse}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773 -}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 action }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12150403 appeal}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 .  Petitioner-Appellee Port Authority of Guam (the 
\'93Port\'94) terminated Javelosa\rquote s employment }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773 on the basis }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 t}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4661578 hat she committed }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid8796619 alleged }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4661578 criminal acts}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2181445 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4661578  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2181445 
despite the fact that}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926  she was not criminally prosecuted.  The main dispute in this case centers on what burden of proof the CSC should have used in}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16658322  considering 
}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4285486 Javelosa}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16658322 \rquote s appeal}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4285486  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773 of }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid2905623 the Port\rquote s adverse action}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 and we granted interlocutory review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13377089  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid6815773 on }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13377089 that issue}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4547926 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11220564 For the reasons }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11943951 
stated}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11220564  herein, we affirm the trial court\rquote s Decision and Order}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14248571\charrsid4547926 
\par }\pard \ltrpar\qc \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid7558666 {\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 I. }{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid6389078  }{\rtlch\fcs1 
\ab\af0\afs24 \ltrch\fcs0 \b\insrsid16208563\charrsid1182043 FACTUAL AND PROCEDURAL BACKGROUND}{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid1067610 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 {\*\bkmkstart SDU_516}[2]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1067610 Javelosa }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 started }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 work}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 ing as an employee of the}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1067610  Port in January 2000.  On December 18, 2012, the Port took adverse action against Javelosa by terminating her employment pursuant to 4 GCA \'a7 4406.  The Port based Javelosa\rquote 
s termination on allegations that she attempted to help her supervisor obtain paid injury leave}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773  by}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610  backdating a memorandum to her own file}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid11291609  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 to make it appear that management was timely addressing the issue.  The Port claimed this amounted to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14038432 criminal }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid11291609 mis}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8807870 conduct}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13450734 , including }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 the violation of}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid13450734  misdemeanors and \'93the felonies of forgery, unlawful influence, and tampering with public records.\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2446114 Record on Appeal (\'93RA\'94
), tab 40 at }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3103700 2}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2446114  (Dec. & Order, Sept. 3, 2015).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610   
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid3168271 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [3]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 
Javelosa appealed her termination}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609  to the CSC.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14038432  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609  T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 he CSC held }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 six days of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 hearings}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13848597 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609  after which it issued a D}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1067610 ecision and Judgment}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13202036  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 finding that the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13202036 Port had not met its burden }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid11291609 to show that its actions were correct under}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13202036  the default clear and convincing burden of proof contained in 4 GCA \'a7 4407(a).}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid13202036\charrsid4661578  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13202036  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 The Port}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13981073  then}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610  pe}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13202036 titioned for judicial review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2181445  in the Superior Court of Guam}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13202036 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 
arguing that the CSC applied the incorrect standard}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 .  Alternatively, the Port argued that the CSC}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10683142  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 
failed to state sufficient findings of fact in its decision.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1067610\charrsid11291609 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [4]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 The trial court agreed with the Port\rquote 
s first contention, holding that the CSC incorrectly used the default clear and convincing standard of 4 GCA \'a7 4407(a)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773  in considering Javelosa\rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10834975 s}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6815773  appeal of the Port\rquote s adverse action}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13450734 .  Instead, the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12150403 trial }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13450734 
court held, the CSC}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610  should have used the substantial evidence }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16658322 standard }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 contained in 4 GCA \'a7 4407(c).  The }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12150403 trial }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 court did not address the second issue}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610\charrsid1407152  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 
raised in the Port\rquote s petition }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 regarding }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16516453 whether }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10834975 the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16516453 
CSC adequately stated its }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 findings of fact}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 .  The trial court}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13450734  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 
remanded}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8796619  the case}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610  to the CSC for a threshold determination of whether the allegations against Javelosa could constitute criminal acts.  Javelosa }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid8796619 timely }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 requested permission to appeal }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12922203 this issue }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 from the trial court\rquote 
s order, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15080534 and we}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11291609 grant}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 ed interlocutory }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid11291609 review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1067610 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11807739\charrsid2905623 
\par }\pard \ltrpar\qc \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid13108519 {\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 II. }{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid6389078  }{\rtlch\fcs1 
\ab\af0\afs24 \ltrch\fcs0 \b\insrsid6912301\charrsid1182043 JURISDICTION}{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid3168271 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [5]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid11291609\charrsid10755481 This court has jurisdiction over interlocutory appeals pursuant to}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid11291609\charrsid10755481  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11291609\charrsid10755481 48 U.S.C.}
{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid10686619 A.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11291609\charrsid10755481  \'a7 1424-1(a) (Westlaw through Pub. L. }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8796619\charrsid10755481 11}{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \insrsid8796619 5}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11291609\charrsid10755481 -}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8796619 1}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid10506207 96}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \insrsid8796619\charrsid10755481  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11291609\charrsid10755481 (}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8796619\charrsid10755481 201}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid8796619 8}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11291609\charrsid10755481 )) and 7 GCA \'a7 3108(b) (2005).  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid11291609\charrsid10755481 See Pineda v. Pineda}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid11291609\charrsid10755481 , 2005 Guam 10 \'b6 6 (citations omitted).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16533332   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12606098 
\par }\pard \ltrpar\qc \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid13108519 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 III. }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid6389078  }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \b\insrsid6912301\charrsid1182043 STANDARD OF REVIEW}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid5645846 {\*\bkmkend SDU_516}
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid3168271 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [6]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10686619 
Before proceeding to the merits}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 , this court must determine the appropriate standard of review.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 Both Javelosa and the CSC}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1927609  su}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14030035 ggest that this appeal should be }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 viewed through the lens of the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1927609 Chevron }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1927609 doctrine.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 Javelosa\rquote s Br. at }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2039864 6}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 -9}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2039864 
 (Feb. 26, 2016)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 ;}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731  CSC\rquote s Br. at 6}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1185898  (Mar. 28, 2016)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 
.  The Port, on the other hand, argues that this is a pure statutory interpretation case reviewable }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid16584731 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 .  Port\rquote s Br. at }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid8796619 3-}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 4}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1185898  (Apr. 1, 2016)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170   }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid4327170\charrsid8457687 We agree}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  with the Port that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4327170 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 
 review is appropriate in this case.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731\charrsid4327170 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [7]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10686619 Unde}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10686619\charrsid3301180 r}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14223508\charrsid3301180  the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14223508 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508  doctrine, a court reviewing }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid12150403 certain }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 agency determination}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12150403 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508  must engage in a two-step }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid10686619 review process}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14223508 See}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid14223508\charrsid14223508  }{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 
\i\insrsid14223508\charrsid13332844 City of Arlington v. FCC}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid13332844 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060 569}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508  U.S. }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1642060 290}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060 296}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid13332844  (2013)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 
 (quoting }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14223508\charrsid12457567 Chevron, U.S.A., Inc. v. Nat. Res. Def. Council, Inc.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 , 467 U.S. 837, 842-43 (1984)); }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid14223508\charrsid810803 see also}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508  }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid9963820\charrsid16322424 Guam Mem\rquote l Hosp. Auth. v. Civil Serv. Comm\rquote 
n (Chaco)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9963820\charrsid16322424 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid810803  2015 Guam 18 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 \'b6 13.  \'93
First, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508 applying the ordinary tools of statutory construction, the court must determine }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9839691 \lquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14223508\charrsid14223508 whether Congress has directly spoken to the precise question at issue.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9839691 \rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 \'94  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid14223508 City of Arlington}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060  569 U.S. at 296}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15476218  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9839691 (quoting }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9839691 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9839691 , 467 U.S. at 842)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 .  \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508 
If the intent of Congress is clear,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 \'94 the court and agency \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508 must give effect to the unambiguously expressed intent of Congress.}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 \'94  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14223508 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9839691  (quoting }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9839691 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9839691 , 467 U.S. at 842-43).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508   If the statute is ambiguous}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5189622 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 
the court proceeds to the second step of the analysis }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10686619 and examines}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508  \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508 whether the agency
\rquote s }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 [interpretation]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508  is based on a permissible construction of the statute}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 .\'94  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14223508 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11030341  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9839691 (quoting }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9839691 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9839691 , 467 U.S. at 843). }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11030341  Where the agency\rquote s interpretation of a statute is permissible, the court defers to the agency\rquote s interpretation.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid11030341 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15476218  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15476218 at 307}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6498037 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid11407986 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [8]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 \'93}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid1651542\charrsid13332844 Chevron}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1651542\charrsid13332844  is rooted in a background presu}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 mption of congressional intent,\'94 and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 
this doctrine therefore applies only where the legislature}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542\charrsid13332844 \'93
understood that the ambiguity would be resolved, first and foremost, by the agency, and desired the agency (rather than the courts) to possess whatever degree of discretion the ambiguity allows.\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542   }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6498037 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060\charrsid1642060  at 296}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 (quoting }{\rtlch\fcs1 \ai\af0 
\ltrch\fcs0 \i\insrsid1651542\charrsid13332844 Smiley v. Citibank (S}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid6498037 .D.}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid1651542\charrsid13332844 )}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 
\insrsid1651542\charrsid7496636 ,}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid1651542\charrsid13332844  N.A.}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \insrsid1651542\charrsid1835384 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542\charrsid6498037  }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid1651542 517 U.S. 735, 740-41 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542\charrsid13332844 (1996)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 )}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16322424 ; }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid16322424 cf. }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424\charrsid16322424 Carlson v. Guam Tel. Auth.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424\charrsid16322424 , 2002 Guam 15}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424  \'b6 18 (}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424\charrsid12865971 deference }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid10319498 appropriate}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424\charrsid12865971  where \'93the agency has specialized knowledge in the area\'94)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid12865971 ; }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid12865971\charrsid12865971 Guerrero}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4607795  v. Santo Thomas}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12865971\charrsid12865971 , 2010 Guam 11 \'b6
 39 (stating that an agency receives deference when it has \'93specialized knowledge in the area\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10686619\charrsid10686619  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10686619\charrsid12865971 (citation omitted)}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12865971\charrsid12865971 )}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542\charrsid12865971 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960\charrsid8935960 \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2181445 [I]}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960\charrsid8935960 nterpretive rules\'94 issued by an agency \'93enjoy no\~}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid8935960\charrsid8935960 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960\charrsid8935960 
\~status as a class.\'94  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid8935960\charrsid13973853 United States v. Mead Corp.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960\charrsid13973853 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960\charrsid8935960 
 533 U.S. 218, 232 (2001).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2181445 Rather, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid8935960 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960 
 deference will apply only where the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11672273 l}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960 egislature }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15476218 expressly or implicitly }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid8935960 intended it to apply.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid8935960 See id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960  at 229.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060 In other words, \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1642060\charrsid1642060 for\~}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid1642060\charrsid1642060 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060\charrsid1642060 \~
deference to apply, the agency must have received congressional authority to determine the particular matter at issue in the particular manner adopted}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060 .\'94  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1642060 
City of Arlington}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060 , 569 U.S. at 306.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid12865971 Congre}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 ss}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 
 will \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542\charrsid13332844 speak in plain terms when it wishes to circumscribe, and in capacious terms when it wishes to enlarge, agency discretion.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 \'94  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1642060 Id. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960 at }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1642060 296}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8935960 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1651542\charrsid8935960 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [9]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4327170 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid10686619 deference }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 does }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10884188 not apply}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170 
to agency litigating positions that are wholly unsupported by regulations,\~rulings, or administrative practice.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 \'94  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4327170 Bowen v. Georgetown Univ. Hosp.}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 , 488 U.S. 204, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15476218 212 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 (1988).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7760530 The Supreme Court has}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid4327170  \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170 declined to give deference to an }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 agency counsel\rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid4327170\charrsid4327170 s interpretation of a statute where the agency itself has articulated no position on the question}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10884188 , on the ground that \lquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid4327170\charrsid4327170 Congress has delegated to the administrative official and not to appellate counsel the responsibility for elaborating and enforcing statutory commands.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 \rquote }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170 \'94\~}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4327170 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  (quoting }{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 
\i\insrsid4327170\charrsid4327170 Inv}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid7760530 .}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid4327170\charrsid4327170  }{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid7760530\charrsid4327170 Co}{\rtlch\fcs1 \ai\af0 
\ltrch\fcs0 \i\insrsid7760530 .}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid7760530\charrsid4327170  Inst}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid7760530 .}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid7760530\charrsid4327170  }{\rtlch\fcs1 \ai\af0 
\ltrch\fcs0 \i\insrsid4327170\charrsid4327170 v. Camp}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \insrsid4327170\charrsid1835384 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid1068644 \~}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 401 U.S. 617, 628 }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170 (1971)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 )}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3627133 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid3627133  \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170 Deference to what appears to be nothing more than an agency}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3627133 \rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid4327170\charrsid4327170 s convenient litigating position would be entirely inappropriate.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3627133 \'94  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid3627133 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15476218 
 at 213.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170\charrsid4327170  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16322424  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16204432 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 [}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3027151 10}{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3168271 ]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid3627133\charrsid15737548 This court has }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid15737548 appl}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370\charrsid15737548 ied}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid11407986  a }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid3627133\charrsid15737548 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid15737548  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid16322424\charrsid15737548 analysis}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \insrsid7876370\charrsid15737548  that}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid13257884  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7760530 fully}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370\charrsid15737548 
 deferred to an agency decision}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid16322424\charrsid15737548  in }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370\charrsid15737548 onl}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid16322424\charrsid15737548 y }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370\charrsid15737548 one }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid16322424\charrsid15737548 prior case}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid15737548 .}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \insrsid7876370   }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid7876370 See San Miguel v. Dep\rquote t of Pub. Works}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370 , 2008 Guam 3 \'b6}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid6122954 
\'b6 25-34}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370  (finding the term \'93legitimate reason\'94 in public law was }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid6122954 implicitly }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370 
ambiguous, had a meaning indicating that the Legislature intended to defer to the agency\rquote s exp}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid14766650 ertise, and deferring to agency\rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid7876370 
s determination that this included excessive slope gradient).}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cs19\super\insrsid14881038 \chftn {\footnote \ltrpar \pard\plain \ltrpar\s17\qj \fi720\li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid489155 
\rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 \cs19\fs20\super\insrsid14881038\charrsid14881038 \chftn }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid14881038\charrsid14881038  In }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038\charrsid14881038 Bank of Guam v. Guam Banking B}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid3802912 oard}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid14881038\charrsid14881038 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 the court cited }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 Ada}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\fs20\insrsid2181445 v. Guam Telephone }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid9963820 Auth}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid3802912 ority}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid9963820  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid14881038 for the proposition that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  review is appropriate in reviewing an agency\rquote s interpretation of a statute.  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038\charrsid14881038 2003 Guam 9 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 \'b6 8 (}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3802912 quoting }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\fs20\insrsid14881038 Ada}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid2181445  v. Guam Tel}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid3802912 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid2181445  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\fs20\insrsid9963820 Auth.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 , 1999 Guam 10 \'b6 10).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14766650 T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 he court}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid16265349 , however,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  also discussed the deference that it afforded an FDIC }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587 letter approving a bank\rquote 
s application to open a new branch}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 See id. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038\charrsid14881038 \'b6\'b6 33-38.}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \fs20\insrsid14881038   This discussion incorporated language usually reserved for a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 
 analysis, and the court specifically stated that the FDIC\rquote s decision \'93merit[ted] deference}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 \'94 }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\fs20\insrsid8811587 i}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 d.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  \'b6 36}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587 , even though the FDIC\rquote s letter was not \'93
an opinion letter or interpretive rule,\'94 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid8811587 id. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587 \'b6 33.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 
  This, however, does not support the notion that the court applied a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  analysis in that case.  The court expressly \'93}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \fs20\insrsid14881038\charrsid14881038 f}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 [ou]nd}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038\charrsid14881038 \~the plain language of the above stat
utes to be conclusive and sufficient to decide the instant matter}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038 \'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587   }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\fs20\insrsid8811587 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587  \'b6 26.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid9973851 Thus, the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587  court correctly never applied }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid8811587 Chevron }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8811587 to the FDIC\rquote s letter}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid9973851 ; rather, the reference to the FDIC\rquote s letter only lent additional support for the court\rquote s reading of the plain statutory language.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid8811587  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid3802912  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14881038 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038   Any additional discussion regarding \'93deference\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid9973851  to the FDIC\rquote s letter approving a bank branch application}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14881038  was therefore mere dicta.   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid9585407\charrsid1796054 
\par }}}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid16322424   To be sure, we have alluded to and cited }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid3627133\charrsid16322424 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid3627133\charrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid13257884 and its progeny in a number of our prior cases}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid16322424 .  But in each instance }{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \insrsid7876370 other than in }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid7876370 San Miguel}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid16322424 , we ultimately }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid15737548 did not 
}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3627133\charrsid16322424 apply }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid15737548 the}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid15737548\charrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid3627133\charrsid16322424 deference}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid15737548  contemplated by the second step of }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\insrsid15737548 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid3627133\charrsid16322424 .  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid12865971 I}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 n\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 Carlson}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid4348924  v. Guam Telephone}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid4348924\charrsid16322424  Auth}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1068644 ority}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 for example, }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 after explaining what}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid13257884  a}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid5057227  }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1068644 Chevron }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1068644 analysis entails, }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid13257884 we}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424  stated: \'93}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\chshdng0\chcfpat0\chcbpat8\insrsid14766650 Even assuming GTA\rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 s interpretation is an agency
 interpretation which should be accorded deference if reasona}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid16322424 ble, we decline to defer to GTA\rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 s interpretation in the instant case. }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid7876370  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 Deference is generally given to an agency interpretation when the agency has spe}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid16322424 
cialized knowledge in the area.\'94}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 \~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid16322424  }{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424\charrsid16322424 2002 Guam 15}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 \'b6 18}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1068644  (citations omitted)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3627133\charrsid16322424 .\~ }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 Similarly, i}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 n\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Ada}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid6828587  v. Guam Telephone Auth}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1068644 ority}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 , the court }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 cited}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 in dicta}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 , but }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid7876370 actually }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 applied a }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 de novo }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 standard }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid7876370 in its}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  review of a statute}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 .  1999 Guam 10}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  \'b6}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054 \'b6}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  10}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054 , 13}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971   }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 There are other cases in which we have }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid6648365 alluded to}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid6648365\charrsid16322424 \~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Chevron}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid6715615 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 \~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid6648365 or its analytical framework}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid6715615 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid6648365  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 
but did not actually apply a full, two-step\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Chevron\~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 analysis. \~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 See, e.g.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 ,\~}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15872274\charrsid4607795 Guerrero}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid4607795 , 2010 Guam 11 }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1068644 \'b6}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid4607795 \'b6 39}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1796054 -40}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid4607795  (}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14030035\charrsid4607795 court \'93[a]ssum[ed] without deciding\'94 that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14030035\charrsid4607795 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14030035\charrsid4607795 
 deference applied to executive orders); }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15872274\charrsid4607795 Blas}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4607795\charrsid4607795  v. Guam Customs & Quarantine Agency}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid15872274\charrsid4607795 , 2000 Guam 12 \'b6}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4607795\charrsid4607795 \'b6}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid4607795  12}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4607795\charrsid4607795 -30 (}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1796054 stating}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1796054\charrsid4607795  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4607795\charrsid4607795 that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4607795\charrsid4607795 
Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4607795\charrsid4607795  analysis applied to agency interpretations but reviewing under a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid4607795\charrsid4607795 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid4607795\charrsid4607795  standard)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid4607795 ; }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid10444599 Guam Fed\rquote n}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid7353529  of Teachers v. }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \i\insrsid1796054 Gov\rquote t }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid7353529 of Guam}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7353529 , 2013 Guam 14 \'b6\'b6 25, 66-68}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3037530  & n.14}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid7353529  (stating agency interpretations of ambiguous statutes are subject to deference but conducting }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid7353529 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7353529  textual analysis). }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15872274\charrsid7353529 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid3027151 {\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3027151 [11]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3027151 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid13257884 In a number}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054  of }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 recent decisions}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid13257884 , we have}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  expressly rejected the application of}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 the }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 Chevron}{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  doctrine as it applied to the CSC\rquote s interpretation of various statutory provisions under Title 4 of the Guam Code Annotated.  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 In\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Guam Housing Corp. v. C}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 ivil }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 S}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 erv}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021 ice}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  }{\rtlch\fcs1 
\ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 C}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 omm}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021 issio}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 n (Potter)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 , }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 we}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 expressly rejected the application of}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 \~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 \~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 to the CSC\rquote s interpretation of 4 GCA \'a7 4403 because \'93}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid12865971 deference is only given to an agency}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 \rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid12865971 s findings where there is no statute that directly speaks to the issue or where such statute is ambiguous}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 \'94}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 2015 Guam 22}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  \'b6 14.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 \~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  Likewise, i}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 n\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Chaco}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 , }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 after briefly reviewing}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 \~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 the }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 Chevron\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 doctrine, }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15872274 we }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 rejected its application to the CSC\rquote s interpretation of 4 GCA \'a7 4406 because }{\rtlch\fcs1 
\ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14693996 section}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15872274  4406}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971  is not \'93}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid12865971 an ambiguous statute left to }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 [the CSC]}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid12865971  by the legislature}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 .\'94  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12865971 2015 Guam 18}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\chshdng0\chcfpat0\chcbpat8\insrsid12865971\charrsid16322424 \~}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15872274 \'b6 14.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1071971\charrsid1071971 In a third case, }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid10444599 Guam Fed}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid11286021 eration}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1071971\charrsid1071971  of Teachers v. }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid1796054\charrsid1071971 Gov}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid11286021 ernment}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1796054\charrsid1071971  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1071971\charrsid1071971 of Guam}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1071971\charrsid1071971 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11286021 we}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1071971\charrsid1071971  engaged in a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1071971\charrsid1071971 de novo}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1071971\charrsid1071971  textual analysis of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14693996 a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1071971\charrsid1071971 
statute and rejected the proffered interpretations from both parties, including the CSC\rquote s interpretation. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16265349  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1071971\charrsid1071971 2013 Guam 14 \'b6\'b6 }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3287116 25, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1071971\charrsid1071971 66-68.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16265349   }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid5057227 Finally, i}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 n a fourth case dealing with the CSC\rquote s interpretation of a statute, }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 Attorney General of Guam v. Perez}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 , }{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021 we}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884  discussed whether the CSC\rquote 
s interpretation was permissible or contrary to legislative intent, but }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid483586 we }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 also made clear that }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021 our}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021\charrsid13257884  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 review was }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 de novo}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 .  2008 Guam 16 \'b6\'b6 20-24.  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021 I}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 n }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 Perez}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid11286021 , we}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884  specifically noted that the applicable statute was \'93clear on [its] face,\'94 }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884 id.}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid6557438  \'b6 23,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884  therefore }{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid6836219 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054 \rquote s}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid1796054  second step}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1796054\charrsid13257884  (i.e., deference to the interpreting agency) was never reached.}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16265349 
\par }{\rtlch\fcs1 \af0 \ltrch\fcs0 \b\insrsid3027151 [12]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3027151 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15872274 W}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14766650 hen }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15872274 
compared with sections 4403 and 4406, we can see no justifiable basis upon which to determine that section 4407 is an ambiguous statute that the Legislature intended to leave to the CSC\rquote s interpretation.  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid10910156 Cf. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9585407\charrsid8935960 Mead Corp.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407\charrsid8935960 , 533 U.S. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407 at}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407\charrsid8935960  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2763048 219}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407 ; }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9585407 City of Arlington}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid9585407 , 569 U.S. at 306}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2763048 -07}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16265349   }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14766650 As a review of our caselaw reveals, w}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14881038 e have never deferred to the CSC\rquote 
s interpretation of a statute under a }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14881038 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14881038  }{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12535798 framework.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid8935960  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14881038  }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12535798 Rather, like in }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12535798 Chaco}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12535798  and }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid12535798 Potter}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid12535798 
, this case presents a pure question of statutory interpretation.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid16322424  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid7353529  }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14766650 
It is clear that the Legislature sought to ascribe the appropriate standard to apply when the CSC is reviewing an adverse action; it did not intend to leave this decision up to the CSC itself.  
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [13]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14766650 Though we reject the application of the }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14766650 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14766650  doctrine in this case, this does not mean that a thoughtful,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 
 consistent interpretation by an agency tasked with administering a statute is not persuasive evidence of the proper interpretation of that statute.  In}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 
 United States v. Mead Corp.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 , the United States Supreme Court }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid489155 held }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 that the general persuasiveness of an agency\rquote s expertise under }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 Skidmore v. Swift & Co.}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 , 323 U.S. 134 (1944)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid2980578 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237  survived the advent of }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 
.  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid13903573 Mead Corp.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid13903573 , }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 533 U.S. }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid2980578 at}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237  234-35.  Under }{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 S}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14826420 kidmore}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 , }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14826420 an agency interpretation is \'93e}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14826420\charrsid14826420 ligible to claim respect according to its persuasiveness}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14826420 .\'94  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid14826420 Id.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid14826420  at 221.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513 
  The weight a reviewing court should give an agency interpretation \'93}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513\charrsid797513 
will depend upon the thoroughness evident in its consideration, the validity of its reasoning, its consistency with earlier and later pronouncements, and all those factors which give it power to persuade}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1071971 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513 \'94  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513 Skidmore}{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513 , 323 U.S. at 140; }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513 see also Mead Corp.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513 , 533 U.S. at 228 }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid797513\charrsid797513 (\'93}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid797513\charrsid797513 
The fair measure of deference to an agency administering its own statute has been understood to vary with circumstances, and courts have looked to the degree of the agency\rquote s care,\~its consistency, formality,\~and relative expertness,\~
and to the persuasiveness of the agency\rquote s position.\'94}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid15679885  (footnotes }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid13370504 and citation }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\insrsid15679885 omitted)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid797513\charrsid797513 )}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid10884188 ; }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf18\insrsid10884188 accord }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \i\cf18\insrsid10884188\charrsid10884188 Carlson}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid10884188\charrsid10884188 , }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid10884188\charrsid10884188 
2002}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid10884188\charrsid16322424  Guam 15}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid10884188  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid10884188\charrsid16322424 \'b6 18}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid10884188  (\'93}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\chshdng0\chcfpat0\chcbpat8\insrsid10884188\charrsid16322424 Deference is generally given to an agency interpretation when the agency has spe}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\chshdng0\chcfpat0\chcbpat8\insrsid10884188 
cialized knowledge in the area.\'94)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid797513\charrsid797513 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid8935960   Properly conceived, this too }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\insrsid13257884 is}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid8935960  a form of deference.  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf18\insrsid1400084 See }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf18\insrsid8935960 Mead Corp.}{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \cf18\insrsid8935960 , 533 U.S. at 234}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1400084  (describing }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf18\insrsid1400084 Skidmore}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf18\insrsid1400084  as holding that \'93an agency\rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1400084\charrsid1400084 s interpretation may merit some deference whatever its form}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1400084 \'94)
}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060 ; }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \i\cf18\insrsid1642060 see also id.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060  at 237}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf18\insrsid1642060  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060 (\'93}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid13370504 [T]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060\charrsid1642060 
he range of statutory variation has led the Court to recognize more than one variety of judicial deference, just as the Court has recognized a variety of indicators that Congress would expect\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf18\insrsid1642060\charrsid1642060 Chevron}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060\charrsid1642060 \~deference}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid13370504 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060 \'94}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid13370504  (footnote omitted)}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid1642060 )}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf18\insrsid8935960 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid8935960 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [14]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid13903573 In}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237  many of our prior cases discussing deference to an agency interpretation}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 we}{
\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237  have often stated that \'93an agency\rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 
s interpretation of a statute is a question of law reviewed\~}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 de novo}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 ,\'94 but immediat}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1071971 ely followed that statement by articulating}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237  that \'93}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 th}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084 
e court may defer to the agency\rquote }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 s interpretation}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 \'94
 and that our }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3105572 \'93[}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 r}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3105572 ]}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 eview }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 
is limited to }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3105572 \lquote }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 whether the agency\rquote }{\rtlch\fcs1 \ai\af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237\charrsid15616237 s conclusion is based on a permissible construction of the statute}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 .}{\rtlch\fcs1 
\ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3105572 \rquote }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid15616237 \'94  }{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid10834975 Ada}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid10834975 ,}{\rtlch\fcs1 \ai\af0\afs24 \ltrch\fcs0 \i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid10834975  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid15616237 1999 Guam 10 \'b6 10 (citations omitted); }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15616237 see also }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14826420 Blas}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14826420 , 2000 Guam 12 \'b6 12}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3280908  (citations omitted); }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid10444599 Guam Fed\rquote n}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid3280908  of Teachers}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3280908 
, 2013 Guam 14 \'b6 25 (citations omitted)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15616237 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid11997328 D}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1400084 e novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1400084 
 review and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid11997328 Chevron }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1400084 deference}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11997328 , as it is fully understood,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1400084 
 are competing ideas. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15616237 True }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15616237 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15616237 
 review is not limited in any way by the interpretation of a lower court}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5008820  or}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1918906  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15616237 agency}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5008820 ;}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1918906  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15616237 by definition it}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629  is a \'93new,\'94 non-deferential review of the issues presented.  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6847629 See Judicial Review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15616237  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6847629\charrsid1835384 Black\rquote 
s Law Dictionary}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629\charrsid6847629  (10th ed. 2014)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629  (defining }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6847629 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid6847629  judicial review as \'93[a] court\rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629\charrsid6847629 s nondeferential review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629  . . .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3105572  .}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629 \'94).  As noted above, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457 despite }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16713448 the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457 citations to }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid3344457 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid3344457  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6847629 Ada}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629 
 and its progeny did not actually apply }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457 the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6847629 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457  doctrine.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1400084 
  We clarify today that t}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629 he \'93deference\'94 referred to in these cases}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14826420  is actually}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid6847629 Skidmore}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629  deference, not }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid6847629 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6847629  deference.}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid10884188   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [15]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9585407 As we stated in }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid947184 Guam Federatio}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid10444599 n}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid10884188  of Teachers}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10884188 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9585407  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407 \'93[t]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407\charrsid7353529 hough we shou}{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407 ld lend great weight to the CSC\rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407\charrsid7353529 s own interpretation of the scope\~of\~
its enabling statute, }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407 ultimately the courts have the \lquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407\charrsid7353529 
final responsibility}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407 \rquote }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407\charrsid7353529  to interpret\~the\~
law and determine whether a challenged administrative action was unauthorized and therefore void.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407 \'94  2013 Guam 14 \'b6 64 (citation omitted).  }{\rtlch\fcs1 \af0\afs24 
\ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084 For these reasons, the CSC \'93}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084\charrsid1400084 may surely}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084  claim the merit of its [interpretation\rquote s]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084\charrsid1400084  thoroughness, logi
c, and expertness, its fit with prior interpretations, and any other sources of weight}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084 .\'94  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\i\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084 Mead Corp.}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084 , 533 U.S. at 235.  But }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9585407 
at the end of the day}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid4672912 ,}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid1400084  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid15872274\charrsid16204432 \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4672912 [t]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid16204432 he interpretation of a statute is a legal question subject to\~}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 
\i\insrsid15872274\charrsid16204432 de novo}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid16204432 \~review.\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9963820 Chaco}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid9963820 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274  2015 Guam 18 \'b6 17 (citation omitted).  \'93[O]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid6818964 
ur duty is to interpret statutes in light of their terms and legislative intent.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274 \'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15872274\charrsid6818964  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15872274  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15872274\charrsid155039 Carlson}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9963820 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15872274\charrsid155039  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid155039 20}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274 02 Guam 15 \'b6 46 n.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274\charrsid7568148 7}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15872274 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid13257884 De novo }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid13257884 review is the standard that applies in this case.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9896214\charrsid9585407 
\par }\pard \ltrpar\qc \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid16458589 {\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 IV.}{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid6389078  }{\rtlch\fcs1 
\ab\af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043  }{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid2849707\charrsid1182043 ANALYSI}{\rtlch\fcs1 \ab\af0\afs24 \ltrch\fcs0 \b\insrsid6912301\charrsid1182043 S}{\rtlch\fcs1 \ab\af0\afs24 
\ltrch\fcs0 \b\insrsid16458589\charrsid16458589 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid16534037 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [16]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 The issue for which we granted interlocutory }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16534037 review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609  is }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16534037 what standard the CSC should utilize in reviewing the correctness of a government agency\rquote s adverse action when that agency has alleged criminal misconduct but the adversely-affected employee has not be
en criminally prosecuted.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \cs19\super\insrsid16534037 \chftn {\footnote \ltrpar \pard\plain \ltrpar\s17\qj \fi720\li0\ri0\sa120\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid13053340 \rtlch\fcs1 \af0\afs20\alang1025 
\ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 \cs19\fs20\super\insrsid16534037\charrsid16534037 \chftn }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid16534037\charrsid16534037 
 The Port and Javelosa also dispute whether the CSC\rquote s written decision contained sufficient factual findings.  That issue, however, is not before us.  Javelosa\rquote s Statement of Issue contained in her Petition for Permission to Appeal }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5057227 stated}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid16534037\charrsid16534037 : \'93Does 4 GCA \'a7 4407(c) unequivocally require the Civil Service Commission to apply the \lquote substantial evidence
\rquote  burden of proof in cases where management has merely alleged that an employee [sic] conduct that [sic] could possibly be construed as \lquote criminal conduct?\rquote \'94  Port Auth. of Guam v. Civil Serv. Comm\rquote 
n (Javelosa), CVA15-025 (Pet. for Permission to Appeal at 2 (Oct. 2, 2015)).  She did not s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid16534037 eek review of how the CSC stated}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid2174578  its findings of fact,}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid16534037\charrsid16534037  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid2174578 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid16534037\charrsid16534037 ee id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid2174578 
, and we decline to address it}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3286819  here}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid13053340 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid489155 \tab }}}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16534037   }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 Pursuant to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11810374 4 GCA \'a7 4407}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16516453 (c)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16516453  \'93[i]n cases involving charges which could be a crime if the person was charged in a criminal action, the [CSC] shall determine the matter based upon }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid16516453\charrsid16534037 
substantial evidence}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16516453  that the employee committed the acts charged.\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \cs19\super\insrsid14440006 \chftn {\footnote \ltrpar \pard\plain \ltrpar
\s17\qj \fi720\li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid489155 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\cs19\fs20\super\insrsid14440006\charrsid10829716 \chftn }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006\charrsid10829716  The origin of this language is uncert}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006 
ain.  There is no indication in a Compiler\rquote s note}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006\charrsid10829716  or }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006 in the public l}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid14440006\charrsid10829716 aw enacting this provision }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006 that it was borrowed}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006\charrsid10829716  from another jurisdiction}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \fs20\insrsid14440006\charrsid6061243 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid14440006\charrsid12932871 See}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14440006  4 GCA \'a7 4407; Guam Pub. L. 16-023 (Aug. 11, 1981).}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \fs20\insrsid1125788   No other jurisdiction has adopted an identically worded statute.}}}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16516453   4 GCA \'a7 4407(c)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16652176  (2005)}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16534037  (emphasis added)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11810374 . }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609\charrsid1835384 
This burden of proof is lower than the default burden of proof placed upon the government }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1322735 to justify its adverse action }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609\charrsid1835384 
in appeals taken to the CSC by affected employees under 4 GCA \'a7 4407(a).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609   The default standard of proof under subsection (a) requires \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609\charrsid1927609 
the government to show }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1927609\charrsid1927609 clearly and convincingly}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609\charrsid1927609 
 that the action of the Branch, department, agency or instrumentality was correct}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 .\'94  4 GCA \'a7 4407(a)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16534037  (emphasis added)}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1927609 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid3027151 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [17]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 On appeal, both the CSC and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11810374 Javelosa }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 argue that}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11810374  there must be formal criminal prosecution}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16516453  for }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 the lower standard contained in subsection (c)}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid16516453  to apply}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 Javelosa }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 emphasizes the statute\rquote s language describing \'93
criminal action\'94 and \'93acts charged\'94 to support the position that there must be an actual criminal proceeding to trigger the substantial evidence standard.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1651542 See }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1651542 Javelosa\rquote s Br. at 10.  The CSC argues that since CSC commissioners have no expertise in criminal law, they should not be called upon to interpret criminal statutes and substitute their judgment for that of prosecutors and judges.  }
{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1651542 See }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 CSC\rquote s Br. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 at 3-5.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 
The Port, in contrast, argues the CSC must itself examine the employer\rquote s factual allegations and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16535998 first }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 determine }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16535998 whether the allegations \'93could be a crime,\'94 in order}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546  to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16535998 then }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 
determine what standard of proof should apply.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1651542 See }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1651542 Port\rquote s Br. at }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8796619 15}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid1651542 -17 (citations omitted).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16534037 Upon }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609 review of the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16534037 applicable statutory provisions}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid1927609 , we }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1927609\charrsid16534037 agree with the Port\rquote s interpretation.  
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [18]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid16534037\charrsid16534037 
\'93Generally, where the standard of judicial review of an agency action is enunciated by regulation or statute, such standard of review will govern.\'94\~}{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid16534037  }{\rtlch\fcs1 \ai\af0\afs21 \ltrch\fcs0 
\cs22\i\insrsid16534037\charrsid16534037 Fagan v. Dell}{\rtlch\fcs1 \ai\af0\afs21 \ltrch\fcs0 \cs22\i\insrsid13053340 \rquote }{\rtlch\fcs1 \ai\af0\afs21 \ltrch\fcs0 \cs22\i\insrsid16534037\charrsid16534037 Isola}{\rtlch\fcs1 \ai\af0\afs21 \ltrch\fcs0 
\cs22\insrsid16534037\charrsid1835384 ,}{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \i\insrsid16534037\charrsid1835384 \~}{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid16534037\charrsid16534037 2006 Guam 11 \'b6 9.}{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 
\insrsid14223508   }{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid3286819 T}{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid6122954 his same rule }{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid3286819 applies}{\rtlch\fcs1 \af0\afs21 \ltrch\fcs0 \insrsid6122954 
 to administrative review of agency action.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508 \'93In cases involving statutory construction, the plain language of a statute must be the starting point.\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14501228  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508 \~}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid14223508\charrsid14223508 Pangelinan v. Gutierrez}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \insrsid14223508\charrsid1835384 ,}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid13053340 \~}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 2000 Guam 11}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508\charrsid14223508  \'b6 23}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16535998 
 (citation omitted)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14223508 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 There are two separate clauses in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13053340 section
}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228  4407(c)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 .  The first}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 
clause dictates the type of cases to which this subsection applies\emdash }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12984688 i.e., }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 \'93[i]n cases involving charges which could be a crime if the person was char}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 ged in a criminal action}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 \'94 (hereinafter, \'93Clause One\'94).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228   4 GCA \'a7 4407(c).  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid14440006 The second clause indicates the standard of review to be applied once it is determined that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 subsection (c) is }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 appli}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid7736206 cable}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 \emdash i.e., \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006\charrsid14440006 the [CSC] shall determine the matter based upon }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14440006 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006\charrsid14440006 ubstantial evidence that the employee committed the acts charged}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 \'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 
 (hereinafter, \'93Clause Two\'94).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14440006 Id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid12984688  
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [19]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid804422\charrsid1786528 Javelosa }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 and the CSC both }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid804422\charrsid1786528 focus heavily on the use of the term \'93charge\'94 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528\charrsid1786528 in }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 their respective briefs}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528\charrsid1786528 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2039864   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid2039864 See, e.g.}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid2039864 , Javelosa\rquote s Br. at 7-8, 10}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 ; CSC Br}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16535998 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731  at 5}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid2039864 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 \'93Charge\'94 is not defined in the context of adverse-action appeals}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3286819 . }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13053340  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3286819 I}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 t should}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3286819 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 
 therefore}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3286819 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228  be}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228\charrsid4522044  ascribed }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 its}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid14501228\charrsid4522044  common }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6715615 and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228\charrsid4522044 ordinary meaning}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 .  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid14501228\charrsid2905842 See Carlson}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 , 2002 Guam 15 \'b6 34 (citations omitted).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5714012 T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 he word 
\'93charge\'94 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12984688 can }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 easily refer}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3286819 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid3286819 depending on the circumstance, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 to both formal charges and factual allegations.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14501228 See }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14501228\charrsid13514297 Merriam\endash Webster Dictionary, C}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 harge}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228\charrsid13514297 , http://www.merriam}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16535998 -}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228\charrsid13514297 webster.com/dictionary/c}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 harge}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228\charrsid13514297  (last visited }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid1835384 July 24, 2018}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 ) (defining charge as \'93a formal assertion of illegality\'94 and}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12984688  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14501228 as \'93a statement of complaint\'94).  Examining }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528 the use of the word \'93charge\'94 in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 surrounding }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid2174578 statutory }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 provisions is generally unhelpful }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578 in this case }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 as well; the adverse action procedure s
tatutes appear to use the word \'93charge\'94 and its derivatives to refer to both formal criminal proceedings and the factual allegations of the employer.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14501228\charrsid2905842 See}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid16535998 , e.g.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16535998\charrsid15812131 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228  4 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13053340 GCA }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14501228 
\'a7\'a7 4106, 4106(h), 4201, 4202.1, 4202.2, 4406 (2005).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528 But, we do not interpret statutory text in a vacuum.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid2039864 See Aguon v. Gutierrez}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid2039864 , 2002 Guam 14 \'b6 9.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8222064   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528 Words or phrases cannot \'93be interpreted in isolation from the\'94 relevant }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9967251 con}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528 text }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 in which they appear.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid3344457  See}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \i\insrsid4731939  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1786528 Pangelinan v. Camacho}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528 , 2011 Guam 9 \'b6 10 (interpreting court\rquote s prior }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16217163 mandate);}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1786528  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid1786528 see also}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9967251  Roethlein v. Portnoff Law Assocs., Ltd.}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9967251 , 81 A.3d 816, 822 (Pa. 2013) (\'93[W]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251\charrsid9967251 e should not interpret statutory words in isolation, but must read them\~with reference to the context in which they appear.}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid9967251 \'94); }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14899304 In re City of Nashua}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14899304 , 68 A.3d 288, 289 (N.H. 2013) (\'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4731939 [W]e }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14899304\charrsid14899304 do not }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9707840 merely look at isolated words or phrases, but instead we co}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14899304\charrsid14899304 nsider the\~}{
\rtlch\fcs1 \ab\af0 \ltrch\fcs0 \insrsid14899304\charrsid14899304 statute}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14899304\charrsid14899304 \~as a whole}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14899304 .\'94 (citation omitted)}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9967251 ).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [20]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206\charrsid3090092 Javelos}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9393147\charrsid3090092 a}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206\charrsid3090092  draws}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206  the court\rquote s attention to the first use of the term charge (\'93
involving charges\'94) in Clause One and the final use of the word charge (\'93acts charged\'94) in Clause Two.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid7736206 See, e.g.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 , Javelosa\rquote 
s Br. at 7-8, 10; CSC Br at 5.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 Directly after the first use of the word \'93charge\'94 in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 Clause One}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 
, the statute provides conditional language indicating that a pending criminal charge is not necessary for this provision to apply.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578 T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 he first use of the word 
\'93charges\'94 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578 in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 Clause One}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 
must be read along with the separate phrases \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9967251\charrsid9967251 could}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251\charrsid9967251  be a crime}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 \'94 and \'93}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9967251\charrsid9967251 if}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251\charrsid9967251  the person }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9967251\charrsid9967251 was}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9967251\charrsid9967251  charged in a criminal action}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 .\'94  4 GCA \'a7 4407(c)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1322735  (emphasis added)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 .  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12537888 This context indicates that the first use of the word \'93charges\'94 is intended to refer to allegations of the employer\emdash not }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578 formal }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid12537888 criminal charges\emdash and that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 criminal charges need not be }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12537888 actively pending}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9967251 
 for this provision to apply.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12537888 The phrases \'93could be a crime\'94 and \'93if the person was charged\'94 are anticipatory in nature in that they speak hypothetically about a potent}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid2230804 ial present or future condition; they do not speak of an actual present condition.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731 
Even the CSC admits in its opening brief that this is the most obvious reading of this statute.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid16584731 See}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16584731  CSC Br. at 3.}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid2039864\charrsid16584731 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [21]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 The phrase \'93
acts charged\'94 as used in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 Clause Two }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006 of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9707840 section}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006  4407}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8222064 (c)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006  must also be examined in context.  Under the statute, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8222064 Clause Two }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid14440006\charrsid14440006 sets the appropriate standard of review for the CSC to apply}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217  in the proceedings before it}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006\charrsid14440006 .}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid14440006   The CSC, of course, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 can be}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14440006  asked only to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 
determine the matters actually presented to it}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 .  It would }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7736206 make no sense }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 for the Legislature to have }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 dictate}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 d}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844  that the CSC}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217  must 
resolve charges filed in a separate proceeding.  Moreover, a}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 dopting this reading of the statute would also raise significant constitutional concerns.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15680844 See }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \scaps\insrsid15680844\charrsid15680844 U.S. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9707840\charrsid1835384 Const.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844  amend. V; 48 U.S.C.A. \'a7 1421b}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid5918217 (e), (u).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844   W}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16535998 here possible, w}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 e must interpret statutes so as 
to avoid potential constitutional infirmities.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15680844 See, e.g.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15680844 Camacho v. Estate of Gumataotao}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid15680844 , 2010 Guam 1 \'b6 23 (collecting cases)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14030035 ; }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid14030035 cf. Guerrero}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14030035 , 2010 Guam 11 \'b6
 40 (rejecting agency interpretation as unreasonable because it would violate Organic Act)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217   Javelosa\rquote s attempt to contort the statute }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid3110279 does not }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 withstand scrutiny.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217\charrsid4607795 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [22]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 Indeed, the CSC\rquote 
s own officially promulgated administrative rules }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 similarly reject }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170 its current litigation position and }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 Javelosa
\rquote s interpretation}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  of the statute}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \cs19\super\insrsid4327170 \chftn {\footnote \ltrpar \pard\plain \ltrpar
\s17\qj \fi720\li0\ri0\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid10444599 \rtlch\fcs1 \af0\afs20\alang1025 \ltrch\fcs0 \fs24\lang1033\langfe1033\cgrid\langnp1033\langfenp1033 {\rtlch\fcs1 \af0 \ltrch\fcs0 
\cs19\fs20\super\insrsid4327170\charrsid4327170 \chftn }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170\charrsid4327170  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170 While the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid4327170 Chevron }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170 doctrine does not apply in this case for the reasons discussed at length above, i}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170\charrsid4327170 f the court were to apply the }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\fs20\insrsid4327170\charrsid4327170 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170\charrsid4327170  doctrine in this case}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid4327170\charrsid4327170 deference would be owed to this officially promulgated}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170  rule\emdash }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid4327170\charrsid4327170 not the }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \fs20\insrsid4327170\charrsid3627133 contrary position set forth by appellate counsel in this case.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid4327170\charrsid3627133 Accord Bowen}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid4327170\charrsid3627133 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid3627133 488 U.S. at 213; }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid3627133\charrsid3627133 see also }{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 
\i\fs20\insrsid3627133\charrsid3627133 Burlington Truck Lines, Inc. v. United States}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid1835384 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid9707840 \~}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \fs20\insrsid3627133\charrsid3627133 371 U.S. 156, 168 (1962)\~(\'93The courts m}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid5714012 ay not accept appellate counsel\rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid3627133 s\~}
{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\fs20\insrsid3627133\charrsid3627133 post hoc}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid3627133 \~rationalizations for agency [orders]}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid14554099 ;}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \fs20\insrsid9707840  . . .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid3627133 \'94)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid10884188 ; }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid10884188 cf. City of Arlington}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid10884188 , 569 U.S. at 306 (noting that \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\fs20\insrsid10884188 Mead}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid10884188  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid10884188\charrsid10884188 denied\~}{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\fs20\insrsid10884188\charrsid10884188 Chevron}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid10884188\charrsid10884188 \~deference to }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\fs20\insrsid10884188\charrsid4731939 action, by an agency with rulemaking authority, that was not rulemaking\'94)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid3627133\charrsid4731939 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid1642060\charrsid4731939   }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid8222064\charrsid4731939 U}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid1642060\charrsid4731939 nder the appli}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid1642060\charrsid12786776 cable }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\fs20\insrsid1642060\charrsid12786776 Skidmore}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid1642060\charrsid786779 
 deference, the fact that the CSC has taken an interpretation in this case apparently at odds with its officially promulgated rule is good reason for us to afford its current interpretation little to no weight.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\fs20\insrsid1642060\charrsid3151632 See Skidmore}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\insrsid1642060\charrsid5189622 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\chshdng0\chcfpat0\chcbpat8\insrsid1642060\charrsid12984688 323 U.S. at 140 (weigh
t to accord agency interpretation depends upon, among other things, \'93its consistency with earlier and later pronouncements\'94).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \fs20\cf17\chshdng0\chcfpat0\chcbpat8\insrsid1642060\charrsid1642060  }}}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid13316733   Pursuant to Rule 11 of the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733\charrsid1796  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 Civil Service Commission Rules of Procedure for Adverse Action Appeals (\'93CSC AA Rules
\'94),}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844  if \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15680844\charrsid7736206 Management\rquote s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid15680844\charrsid15680844 allegations}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15680844\charrsid4327170 would}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844 
 constitute criminal charges, then Management bears the burden of proof to prove the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid15680844\charrsid15680844 allegations}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15680844  by substantial evidence.}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid13316733\charrsid1796 \'94 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  CSC AA R. 11}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4327170  (emphasis added)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733\charrsid1796 .}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid13316733   Under th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 is official interpretation\emdash not the CSC\rquote s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  mere litigation position adopted for purposes of this appeal
\emdash the first use of the word \'93charges\'94 in }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 Clause One of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9707840 section}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  4407(c) is interpreted as \'93}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 Management\rquote s }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 allegations\'94 in the adverse-action proceeding.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid13316733\charrsid9009986 See id.}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid13316733   Further, use of the conditional term \'93would\'94 indicates that }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578 actively pending}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  criminal charges }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid2174578 are}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  not required}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2174578  for the substantial evidence standard of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9707840 section}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid2174578  4407(c) to apply}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  under this }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8222064 official}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  interpretation of the statute}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid13316733 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid13316733\charrsid10097471 See id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 The term \'93acts charged}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid5918217 \'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  in Clause Two}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217  is also interpreted as meaning the \'93allegations\'94 filed in the CSC proceeding under this rule.  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid5918217 See id.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 Thus, the CSC}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12266924 \rquote s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  official inter}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid16280870 pretation}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217  similarly adopts the statute}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 \rquote }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5918217 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid13316733  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 most }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 plain}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 , logical}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  meaning.  }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \i\insrsid13316733\charrsid10097471 See id.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 [23]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid3027151 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 In addition}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid16524451  to the statute\rquote s plain meaning}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 , a}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 ccepting the CSC\rquote s and Javelosa\rquote s interpretation would, a}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid685382\charrsid13398868 s the trial court }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11554517 reasoned}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 essentially}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  nullify }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  substantial evidence exception}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid2129546  in many instances}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid685382\charrsid5062473 See}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid13048024 RA, tab}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13048024 40 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868 at }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13048024 8}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  (Dec. & Order).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 Criminal prosecution}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156  operate }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 entirely apart from}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156  the 60}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16723289 -}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 day rule }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid2129546 applicable }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 in adverse}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 -}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 action proceedings}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid2129546 .  While }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6256164 a statement of charges justifying an }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 a}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868 dverse action must be }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid6256164 provided}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 within}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  60 days }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid685382 after}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382\charrsid13398868  the alleged improper conduct is k}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 nown or should have been discovered}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid2129546 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid2129546 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid685382\charrsid2098236 ee}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382  4 GCA \'a7 4406}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16723289  (2005)}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 , the timing of criminal charges}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 are controlled by }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 long}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid8598142 er}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382  statutes of limitations}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546  that}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382  often }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid11948156 extend }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 up to several years}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156  after the alleged }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 mis}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 
conduct took place}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid2129546 s}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid685382\charrsid865506 ee}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid685382  8 GCA \'a7 10.20(c) (2005) (setting the default }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16723289 limitations }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 period for felonies at three years); 8 GCA \'a7
 10.30 (2005) (setting the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16723289 limitations }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 period for misde}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2493923 meanors at one year).  Despite the fact that }{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid12270929 conduct }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2493923 by an employee might be cause for both termination and}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546  criminal}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2493923 
 prosecution, there is no }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7893681 pertinent }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 connection between the initiation of an adverse}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11228278 -}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid685382 action proceeding and the process and reasoning for }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid11948156 instituting }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid685382 formal criminal charges.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16280870 Based upon the structure of the statute itself, subsection (c) logically appears intended }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 to apply a lower standard of proof }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 necessary}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8222064 for }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid2129546 an employer to justify an adverse action where potential criminal misconduct is at issue}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid16524451 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid16280870 Compare}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  4 GCA \'a7 4407(a), }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\i\insrsid16280870 with}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  4 GCA \'a7 4407(c).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3032301   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 Applying the substantial evidence standar
d only where formal criminal charges have been filed risks frustrating the intent of the statutory scheme.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid16280870 See }{\rtlch\fcs1 \ai\af0 \ltrch\fcs0 \i\insrsid16280870\charrsid16649167 Ada}{\rtlch\fcs1 
\ai\af0 \ltrch\fcs0 \insrsid16280870\charrsid471331 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  1999 Guam 10}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870\charrsid16649167  \'b6 10}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 
 (citations omitted).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4865908   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid9989213 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid9989213 [24]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid9989213 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 We are}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576  mindful of}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  the policy concern}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid7212576 s inherent in}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  giving discretionary decision-making }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 authority }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 to an agency tha}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12590587 t feels incapable of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 faithfully executing that authority}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12590587  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid16280870 S}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid13316733 ee }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 CSC\rquote s Br. at 3-5}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid16524451 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451  W}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 e}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576  }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid15818499 also }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 believe}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 , however,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576  that the }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 CSC\rquote 
s fear of being left to interpret }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15818499 criminal }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 statutes with no knowledge of how to do so }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 is}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid15496893  overstated.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 here a
re numerous situations where the CSC must apply legal standards and knowledge of the law in its decision-making, despite not being composed of legal experts.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid8591206\charrsid8591206 See, e.g.}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid8591206\charrsid8591206 , 5 GCA \'a7 9226 }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206 (2005) }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206 (}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206 
requiring understanding of hearsay and privilege in}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206  administrative adjudication proceedings); 5 GCA \'a7 9228}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206  (2005)}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid8591206\charrsid8591206  (allowing official notice of facts that courts of Guam would judicially notice).  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16217163 hus, this is not an isolated, }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576 extraordinary}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16217163 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16217163 or unusual }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid7212576 statute. }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid8266680 See}{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid5714012 , e.g.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5714012 ,}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \i\insrsid5714012  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14554099 N.Y. Civ. Serv.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8266680  Law \'a7 75(4) }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid14554099 (McKinney 2018) }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid8266680 (18-month statute of limitations for removal or disciplinary proceedings not applicable \'93}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8266680\charrsid8266680 
where the incompetency or misconduct complained of and described in the charges would, if proved in a court of appropriate jurisdiction, constitute a crime}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8266680 \'94)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10889880 
.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206 Additionally, the CSC employs legal counsel and may have its own infrastructure in place to make legal determinations.  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid8591206\charrsid8591206 See}
{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206  4 GCA \'a7 4405 (2005) (CSC must employ Administrative Law Judge or }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206 hire a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206 
private attorney to serve as }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12984688 an Administrative Law Judge }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206 to assist with \'93adjudicatory responsibilities\'94); }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid13316733 CSC }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206\charrsid8591206 AA R. 11.2.2 (decisions on admissibility of testimony or evidence are made after consulting with administrative counsel).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid8591206  }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid7212576  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 Further}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12736367 more}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 , the CSC }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9852071 need not decide }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 whether the employee actually committed a crime}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13257456 ;}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  it i
s merely determining a threshold issue }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 of what}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  burden of proof}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451  applies.  A}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid15496893 nd }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 if the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  CSC }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 were }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 incorrect}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid16524451  in this determination}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 this error}{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid15496893  would presumably be reversed under judicial review}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12266924 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9852071   }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9852071 See }{\rtlch\fcs1 \af0 \ltrch\fcs0 
\insrsid9852071 5 GCA \'a7 9240}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3168271  (2005)}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9852071 ; }{\rtlch\fcs1 \af0 \ltrch\fcs0 \i\insrsid9852071 see also Fagan}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9852071 
, 2006 Guam 11 \'b6\'b6 10-12.}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12266924   In other words,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  there are procedural protections }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 that would}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid13316733  prevent the parade of horribles that the CSC imagines.  T}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 he law }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 give}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 s}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  the CSC th}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12984688 e}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  authority and obligation}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12984688  under }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid13047400\charrsid13047400 4 GCA \'a7 4407}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13047400  to determine what standard of proof applies to }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13257456 a }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13047400 
given adverse action appeal.  If}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13047400 this is }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 found }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 
unacceptable, legislative act}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 ion would be the proper remedy\emdash }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 not}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451  a judicial rewrite of the statute}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 .  
\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid9989213 [25]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \cf17\chshdng0\chcfpat0\chcbpat8\insrsid9989213 \tab }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3344457 W}{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid13316733 e}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13047400  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733 find that}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13047400 ,}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13316733  pursuant to }{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid10889880 4 GCA \'a7 4407(c),}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3032301  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9530108 where an employer alleges misconduct}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16280870 
 by an employee}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9530108 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 the CSC must }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9530108 make a threshold }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid12736367 determination}{
\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  whether}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9530108  the}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893  factual allegations }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid9530108 
correspond to statutory prohibitions in the criminal code}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid15496893 .  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3032301 If so, }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid1835384 the CSC \'93
shall determine the matter based upon substantial evidence that the employee committed the acts charged.\'94}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4601867   4 GCA \'a7 4407(c).}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid3032301   }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid16524451 If the allegations of the employer }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5714012\charrsid8266680 would}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid5714012  not}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13047400  }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid5714012\charrsid8266680 constitute a crime}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4731939\charrsid4731939  }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid4731939\charrsid8266680 if proved in a court of appropriate jurisdiction}{\rtlch\fcs1 
\af0 \ltrch\fcs0 \insrsid5714012 , }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 the clear and convincing standard of }{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid13257456 section}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451  4407(a) }{\rtlch\fcs1 \af0 
\ltrch\fcs0 \insrsid4731939 applies}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid16524451 .}{\rtlch\fcs1 \af0 \ltrch\fcs0 \insrsid594101 
\par }\pard \ltrpar\qc \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid13108519 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 V. }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid6389078  }{\rtlch\fcs1 
\af0\afs24 \ltrch\fcs0 \b\insrsid6912301\charrsid1182043 CONCLUSION}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid14248571\charrsid1182043 
\par }\pard \ltrpar\qj \li0\ri0\sl480\slmult1\widctlpar\wrapdefault\faauto\rin0\lin0\itap0\pararsid9989213 {\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\cf17\chshdng0\chcfpat0\chcbpat8\insrsid9989213 [26]}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\cf17\chshdng0\chcfpat0\chcbpat8\insrsid9989213 \tab }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3344457 For the reasons set forth above, w}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4731939 e }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid4731939 
AFFIRM }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid2238876 the Superior Court\rquote s decision}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3168271  and order}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid16534037  and}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid1132448  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \b\insrsid2238876\charrsid2238876 REMAND}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid2238876  }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4731939 the case to }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid2238876 the }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid1132448 Superior Court}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid4731939  so that it}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid1132448  may remand th}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 
\insrsid4731939 e}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid1132448  matter to the }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3344457 CSC }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid1132448 
for a threshold determination of the proper standard of review}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid15494482  in Javelosa\rquote s case}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid1132448 .}{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid2825178 

\par }{\rtlch\fcs1 \af0\afs24 \ltrch\fcs0 \insrsid3241080 
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