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You're exactly right that the divorce decree governs, and if it doesn't say that the grandparents have the right of first refusal if the father can't exercise his visitation, then the grandparents don't have that right.
But, the grandparents could file a petition in court for visitation and seek a court-ordered right to see the grandchildren.....and the court is likely to grant that based on the history of their relationship and the role the grandparents/grandfather has had in the child's life.
But, the grandfather being guardian of the father doesn't give him (grandfather) the ability to substitute his name in place of the father in the order.