Guam is a US territory, thus the 1 prefix. Saipan is a little bit strange since Northern Mariana Islands are commonwealth of the US as well.
Unlike Guam which was part of the Philippines by reason of Spanish sovereignty, Saipan was part of Germany after the German-Spanish war in 1899, and Japan by 1914 to 1944. I think this was the reason why they are treated separately. Filipinos comprises 35% of Saipan population.
Palau used to be part of Micronesia under the old US bilateral. Since its independence in 1994, it ceases to be part of Micronesia. Previously, Guam, Saipan and Palau were Routes 1 of US Bilaterals until 1996.
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