Full Judgment Text
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PETITIONER:
DOBURG LAGER BREWERIES PVT. LTD.
Vs.
RESPONDENT:
DHARIWAL BOTTLE TRADING CO. & ANR.
DATE OF JUDGMENT14/03/1986
BENCH:
VENKATARAMIAH, E.S. (J)
BENCH:
VENKATARAMIAH, E.S. (J)
THAKKAR, M.P. (J)
CITATION:
1986 AIR 1547 1986 SCR (1) 841
1986 SCC (2) 382 1986 SCALE (1)388
ACT:
Bombay Relief Undertakings (Special Provisions) Act,
1958, ss. 3 and 4 - Declaring an industrial undertaking as a
"relief undertaking" - Whether grant of loan under the Act
is a condition precedent - Whether s. 3 is controlled by the
Preamble to the Act.
HEADNOTE:
The appellant, a private limited company, carrying on
business in a backward area of the State, had employed about
200 workmen. It had borrowed about Rs.52.30 lakhs from the
State Industrial and Investment Corporation of Maharashtra
Limited (SICOM). It ran into financial difficulties as a
result of which winding up proceedings were commenced
against it by a creditor, respondent No.1 in the year 1982.
Taking into consideration the financial position of the
appellant-company and the consequences that were likely to
ensue if the industry was to be closed, the State issued a
notification under section 3 and sub-clause (iv) of clause
(a) of sub-section (1) of section 4 of the Bombay Relief
Undertakings (Special Provisions) Act, 1958 declaring it as
a relief undertaking and directing that any right,
privilege, obligation or liability accrued or incurred by
the appellant-company (except those mentioned in the
Notification) before it was declared a relief undertaking
and any remedy for the enforcement thereof became suspended
and all proceedings relative thereto pending before any
court, tribunal, officer or authority came to be stayed
automatically. Consequently, the Company Judge of the High
Court stayed the proceedings in the winding up petition. The
Division Bench also confirmed the order of the Company Judge
in appeal. The State Government also issued subsequent
notifications on May 9, 1984, May 10, 1985 and November 8,
1985 for the same purpose and pursuant to the resolution of
SICOM dated February 17, 1984 another loan of Rs.15 lakhs
was advanced to the appellant-company by the State
Government through SICOM.
842
Respondent No.1 then filed a writ petition in July 1984
in the High Court challenging the aforesaid Notifications.
The learned Single Judge allowed the writ petition and
quashed the Notifications on the ground that in order to
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invoke the powers under section 3(1) of the Act, the
condition precedent was that the State Government must have
provided under the Act, loan guarantee and other financial
assistance to the undertaking as a measure preventing
unemployment relief as per the Preamble of the Act and since
it had not been established that Rs.52.30 lakhs had been
lent by SICOM under the Act as a measure of preventing
unemployment or employment relief, the Notification dated
November 10, 1983 was ultra vires the Act and that the
advance of Rs.15 lakhs by the State Government before May 9,
1984 did not cure the defect. The appellant-company filed an
appeal against the order of the learned Single Judge and the
same was dismissed by the Division Bench in limine.
Allowing the appeal,
^
HELD: 1. The decision of the High Court that unless
loan is advanced by the State Government under the Act no
declaration can be made under section 3 of the Act is wholly
erroneous. It is not warranted by the provisions of the
statute. The case is remanded to the High Court to consider
the other contentions of the parties. [854 A; 853 H]
2. The whole object of the Act is to subserve the
public interest and in particular to prevent unemployment or
to grant unemployment relief. Section 3 of the Act which is
a self-contained one refers to the industrial undertakings
in respect of which a declaration may be made under it. It
is not controlled by the Preamble to the Act. An industrial
undertaking which may be declared as a relief undertaking
under sec. 3 may be of two kinds. It may be an industrial
undertaking started, acquired or otherwise taken over by the
State Government and carried on or proposed to be carried on
by the State Government or under its authority. It may also
be an industrial undertaking to which any loan, guarantee or
other financial assistance has been provided by the State
Government. There should be a declaration that an industrial
undertaking of either kind should be conducted to serve as a
measure of preventing unemployment or an unemployment
relief.
843
Then such an undertaking will be deemed to be a relief
undertaking for the purposes of the Act. The consequences of
such declaration are contained in section 4 of the Act, one
of them being that the State Government gets the power to
direct that notwithstanding any law, usage, custom,
contract, instrument, decree, order, award, submission,
settlement, standing order or other provision whatsoever any
right, privilege, obligation or liability accrued or
incurred before the undertaking was declared as relief
undertaking and any remedy for the enforcement thereof shall
be suspended and all proceedings relative thereto pending
before any court, tribunal, officer or authority shall be
stayed. A notification issued under sub-section (1) of
section 3 is renewable by like notification from time to
time for further periods not exceeding twelve months at a
time, so however that all the periods the aggregate do not
exceed fifteen years. [851 F-H; 852 A-D]
3. A distinction has been made in the Act between cases
falling under sub-clause (ii) of clause (a) of sub-section
(1) of section 4 of the Act and cases falling under sub-
clause (iv) of clause (a) of sub-section (1) of section 4 of
the Act. Sub-clause (ii) of section 4(1)(a) of the Act
refers to the agreements, settlements, awards, standing
orders made under the several labour laws mentioned under
the Schedule to the Act and states that agreements etc.
which may be applicable to a relief undertaking before it
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was acquired or taken over by the State Government or before
any loan, guarantee or other financial assistance was
provided to it by or with the approval of the State
Government for being run as a relief undertaking may be
suspended in operation or shall, if so directed by the State
Government be applied with such modifications as may be
specified in the notification issued for the said purpose.
In this case the Act seems to resolve a likely value-
conflict between loans given for running the industry as a
relief undertaking and the rights of workmen under the
agreements, awards etc. under the labour laws in the
Schedule. This sub-clause does not have anything to do with
sub-clause (iv) of section 4(1)(a) under which the case of a
creditor like respondent No.1 falls. Another distinction
which may be noticed is the difference between the language
in sub-clause (ii) of section 4(1)(a) and in section 3. The
former contains these words ’before any loan, guarantee or
other financial assistance was provided to it by or with the
844
approval of the State Government for being run as a relief
undertaking’ (emphasis added). In section 3, the words are
"or to which any loan, guarantee, or other financial
assistance has been provided by the State Government shall
with effect from....... be conducted to serve as a measure
or of unemployment relief." (emphasis added). The only
precondition for the exercise of the power under section 3
is that loan must have been advanced prior to the date of
notification and it must still be outstanding on that day.
This is what leaps to the eyes effortlessly on the mere
opening of the eyes. On the other hand, section 3 does not
say expressly or by implication "a loan etc. is given for
being run as a relief undertaking under this Act." [852 H;
853 A-G]
In the instant case, the State of Maharashtra had
provided through SICOM which is virtually an agent of the
State Rs. 52.30 lakhs by way of an advance to the appellant-
company before the first notification was issued, and at any
rate before the second notification was issued the State
Government itself had advanced Rs. 15 lakhs in addition to
what SICOM had advanced earlier. Hence the industry of the
appellant-company was one to which any loan, guarantee or
other financial assistance had been provided in the State
Government. There is no provision in the Act requiring that
any such loan should be granted under it before a
declaration may be made under section 3(1) thereof. [852 E-
G]
JUDGMENT:
CIVIL APPELLATE JURISDICTION : Civil Appeal No. 932 of
1986.
From the Judgment and Order dated 21.1.1986 of the
Bombay High Court in Appeal No. 28 of 1986.
Dr. Y.S. Chitale and Mukul Mudgal for the Appellant.
K. Rajendra Choudhary for the Respondents.
The Judgment of the Court was delivered by
VENKATARAMIAH, J. At the conclusion of the hearing of
the above appeal on March 10, 1986 we passed the following
order in the above appeal and the connected special leave
petition:
845
"Special leave granted. We do not agree with the
view of the High Court that the loan in question
should have been advanced under the Act in order
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to attract the provisions of sections 3 and 4 of
the Bombay Relief Undertakings (Special
Provisions) Act, 1958. The judgment of the learned
Single Judge and of the Division Bench of the High
Court are set aside and the case is remanded to
the learned Single Judge to consider the
submissions to be made on other points involved in
this case. It is open to the Union which has filed
Special Leave Petition No. 3428 of 1986 to apply
to the High Court for being impleaded and the High
Court on such application being made will consider
it in accordance with law. The appeal and Special
Leave Petition No. 3428 of 1986 are disposed of
accordingly. There is no order as to costs.
Reasons follow."
We are quite unhappy with the order of the Bombay High
Court against which this appeal is filed. The grounds urged
in support of the writ petition were fallacious, the reasons
given by the learned Single Judge for allowing it were
faulty and the order of dismissal of the appeal in limine
passed by the Division Bench exhibits indifference. Courts
are expected to show more concern and to give greater
attention before quashing a statutory instrument made or
issued under a beneficent legislation intended to prevent
large scale unemployment and misery than what is shown by
the High Court in this case.
The facts of the case are these. The appellant herein
is a private limited company and has been carrying on
business in the State of Maharashtra. It ran into financial
difficulties as a result of which winding-up proceedings
were commenced against it. M/s. Dhariwal Bottle Trading Co.,
respondent No.1 herein, which is a partnership firm filed
Company Petition No. 119 of 1982 as a creditor for winding-
up of the appellant company. The appellant company was
carrying on business in a backward area of the State of
Maharashtra. It had employed about 200 workmen who were
likely to be thrown out of employment. The appellant company
had also borrowed about
846
Rs.52,30,000 from the State Industrial and Investment
Corporation of Maharashtra Ltd. (SICOM). Taking into
consideration the financial position of the appellant
company, and the consequences that were likely to ensue if
the industry which was being run by it was to be closed, the
Government of Maharashtra took action under the Bombay
Relief Undertakings (Special Provisions) Act, 1958
(hereinafter referred to as ’the Act’) by declaring it as a
relief undertaking with effect from November 10, 1983 by its
notification issued on November 10, 1983 under section 3 and
sub-clause (iv) of clause (a) of sub-section (1) of section
4 of the Act. The notification reads thus:
"NOTIFICATION
Industries, Energy and Labour
Department, Mantralaya, Bombay 400032,
Dated the 10th day of November, 1983.
No BRU-1083/(9602)/IND-10. In exercise of the
powers conferred by section 3 and sub-clause (iv)
of clause (a) of sub-section (1) of section 4 of
the Bombay Relief Undertakings (Special
Provisions) Act, 1958 (Bom. XCVI of 1958), the
Government of Maharashtra, hereby-
(a) declares that the industrial undertaking
called "M/s. Doburg Lager Breweries (P) Ltd.,
Bombay" (hereinafter referred to as "the said
relief undertaking") to which State Industrial and
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Investment Corporation Maharashtra Ltd., has
provided a loan of Rs. 52.30 lakhs, shall for a
period of 6 months commencing from 10th day of
November, 1983 be conducted to serve as a measure
of unemployment relief; and
(b) directs that in relation to the said relief
undertaking and in respect of the said period for
which the said relief undertaking continues as
such, any right, privilege, obligation or
liability (excepting the obligations or
liabilities incurred in favour of workmen of the
said relief undertaking or in favour of the
industrial units which are
847
registered as small scale industrial units with
the Directorate of Industries of the Government of
Maharashtra, the Maharashtra State Electricity
Board, the State Industrial and Investment
Corporation of Maharashtra Limited, the
Maharashtra State Financial Corporation, Bank of
Maharashtra, Vijaya Bank, Bank of India,
Industrial Development Bank of India, Industrial
Finance Corporation of India and Industrial Credit
and Investment Corporation of India and the dues
of the Employees’ State Insurance Corporation, and
any liability incurred under the Bombay Sales Tax
Act, 1959 (Bom. LI of 1959), the Maharashtra State
Tax on Professions, Trades, Calling and
Employments Act, 1975 (Mah. XVI of 1975), and the
Employees’ Provident Fund and Miscellaneous
Provision Act, 1952 (19 of 1952), accrued or
incurred before the 10th day of November 1983 and
any remedy for the enforcement thereof shall be
suspended and all proceedings relative thereto
pending before any Court, tribunal, officer or
authority shall be stayed.
By order and in the name of the Governor of
Maharashtra.
P.L. Sawai, Desk Officer, Industries,
Energy & Labour Department"
The above notification was to be effective for a period
of six months at the first instance.
Section 3 and the relevant part of section 4 of the Act
read as follows :
"3.(i) If at any time it appears to the State
Government necessary to do so, the State
Government may, by notification in the Official
Gazette, declare that an industrial undertaking
specified in the notification, whether started,
acquired or otherwise taken over by the State
Government, and carried on or proposed to be
carried on by itself or under its authority, or to
which any loan,
848
guarantee or other financial assistance has been
provided by the State Government shall, with
effect from the date specified for the purpose in
the notification be conducted to serve as a
measure of preventing unemployment or of
unemployment relief and the undertaking shall
accordingly be deemed to be a relief undertaking
for the purposes of the Act.
(2) A notification under sub-section (1) shall
have effect for such period not exceeding twelve
months as may be specified in the notification;
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but it shall be renewable by like notifications
from time to time for further periods not
exceeding twelve months at a time, so however that
all the periods in the aggregate do not exceed
fifteen years.
4.(1) Notwithstanding any law, usage, custom,
contract, instrument, decree, order, award,
submission, settlement, standing order or other
provisions whatsoever, the State Government may,
by notification in the Official Gazette, direct
that -
(a) in relation to any relief undertaking and in
respect of the period for which the relief
undertaking continues as such under sub-section
(2) of section 3 -
.............................................
(iv) any right, privilege, obligation or liability
accrued or incurred before the undertaking was
declared a relief undertaking and any remedy for
the enforcement thereof shall be suspended and all
proceedings relative thereto pending before any
court, tribunal, officer or authority shall be
stayed;
.........................."
The effect of the above mentioned notification dated
November 10, 1983 was that any right, privilege, obligation
or liability accrued or incurred by the appellant company
(except those mentioned therein) before it was declared a
relief undertaking and any remedy for the enforcement
thereof became suspended and all proceedings relative
thereto pending before
849
any Court, tribunal, officer or authority came to be stayed
automatically. Consequently the proceedings in the winding-
up petition (Company Petition No. 119 of 1982) filed by the
Ist respondent against the appellant company were also
stayed by the Company Judge of the High Court. Against his
order an appeal was filed before the Division Bench and that
appeal was dismissed. The order of stay thus became final.
Having failed in its attempt to get the order of stay
vacated, the respondent No. 1 apparently in order to coerce
the appellant filed a writ petition, being Writ Petition No.
1552 of 1984 out of which this appeal arises on the file of
the Bombay High Court challenging the notification issued
under sections 3 and 4 of the Act and subsequent
notifications which had been issued from time to time on May
9, 1984, May 10, 1985 and November 8, 1986 for the same
purpose. It may be stated here that even today the last of
the notifications that is the one issued on November 8, 1985
under those provisions is in force. It should also be stated
here that pursuant to the resolution of SICOM dated February
17, 1984, another loan of Rs. 15,00,000 was advanced to the
appellant company by the State Government through SICOM. The
notification dated May 9, 1984 recites that Rs.15,00,000 had
been so advanced. It says that the State Government had
provided the said loan under a package scheme of incentives
through SICOM and the said recital is repeated in each of
the subsequent notifications. Everyone of them contains a
declaration in terms of section 3 and a direction under
section 4(1)(a)(iv) of the Act as stated above. Each one of
them can stand by itself though they refer to the fact that
the undertaking is having the protection with effect from
November 10, 1983, that is from the date of the first
notification, as that date becomes relevant for purposes of
computing the aggregate period under section 3(2) of the
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Act.
The Writ Petition was allowed by the learned Single
Judge with costs and the notifications were quashed. An
appeal filed by the appellant company against the order of
the learned Single Judge was dismissed by the Division Bench
in limine. The order of the Division Bench ran as follows:
"Heard both sides. Stay to continue for four
weeks. Dismissed."
850
This appeal is filed under Article 136 of the
Constitution against the order of the Division Bench.
The writ petition was filed in July 1984 after the
State Government had issued the notification dated May 9,
1984 containing the statement that the State Government had
advanced an additional loan of Rs.15,00,000 to the appellant
company. The contention urged on behalf of the respondent
No.1 (the petitioner in the writ petition) may be stated in
the language of the learned Single Judge himself, thus :
"5. Shri Cooper, learned counsel appearing for the
petitioners while attacking the notification dated
November 10, 1983 being illegal and contrary to
section 3 of the Act urged that the said
Notification does not fulfil the condition
precedent prescribed under section 3 of the Act
viz. ’giving a financial assistance to a sick unit
like the respondent No.2 herein under the Act
before issuing such notification. According to the
learned counsel before issuance of the
notification under section 3(1) of the Act the
Government must have given under that provision
any loan, guarantee or other financial assistance.
He further submitted that no financial assistance
and/or loan and/or guarantee has been provided by
the State Government under the Act before issuing
the notification dated November 10, 1983, and,
therefore, the impugned Notification is contrary
to section 3(1) of the Act."
(emphasis added)
Having set out the contention of the respondent No.1
the learned Single Judge assumed for purposes of the case
that SICOM was ’the State’ within the meaning of Article 12
of the Constitution. Then he proceeded to observe that
Rs.52.30 lakhs had been advanced by SICOM as loan not "under
this Act", but it was only an ordinary commercial
transaction. Then he held that in order to invoke the powers
under section 3(1) of the Act, the condition precedent was
that the State Government must have provided under the Act
loan, guarantee and other financial assistance to the
undertaking as a measure preventing unemployment relief as
per the Preamble of the Act and since it had not been
established that Rs.52.30 lakhs had been
851
lent by SICOM under the Act as a measure of preventing
unemployment or unemployment relief, the notification dated
November 10, 1983 was ultra vires the Act. He further held
that the advance of Rs.15,00,000 by the State Government
before May 9, 1984 did not cure the defect. He was of the
opinion that the subsequent notifications having been issued
in continuation of the first notification were equally
ineffective. The petition thus came to be allowed and the
appellant company lost the protection granted to it by the
Act. Since the Division Bench has not given any reasons for
its order we need not refer to it in greater detail.
The Act contains just four sections in addition to its
long-title and the Preamble. The Preamble reads :
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"WHEREAS it is expedient to make temporary
provision for industrial relations and other
matters to enable the State Government to conduct,
or to provide loan, guarantee or financial
assistance for the conduct of, certain industrial
undertakings as a measure of preventing
unemployment or of unemployment relief; It is
hereby enacted in the Ninth Year of the Republic
of India as follows ;-"
Section 1 of the Act sets out the short title of the
Act and the extent of its application. Section 2 of the Act
defines ’industry’ and ’relief undertaking’. ’Relief
undertaking’ means an industrial undertaking in respect of
which a declaration under section 3 is in force. Section 3
of the Act and the material part of section 4 have already
been set out above. Section 3 which is a self-contained one
refers to the industrial undertakings in respect of which a
declaration may be made under it. It is not controlled by
the Preamble to the Act. An industrial undertaking which may
be declared as a relief undertaking under section 3 may be
of two kinds. It may be an industrial undertaking started,
acquired or otherwise taken over by the State Government and
carried on or proposed to be carried on by the State
Government or under its authority. It may also be an
industrial undertaking to which any loan, guarantee or other
financial assistance has been provided by the State
Government. There should be a declaration that an industrial
undertaking of either kind should be
852
conducted to serve as a measure of preventing unemployment
or an unemployment relief. Then such an undertaking will be
deemed to be a relief undertaking for the purposes of the
Act. The consequences of such declaration are contained in
section 4 of the Act one of them being that the State
Government gets the power to direct that notwithstanding any
law, usage, custom, contract, instrument, decree, order,
award, submission, settlement, standing order or other
provision whatsoever any right, privilege, obligation, or
liability accrued or incurred before the undertaking was
declared as relief undertaking and any remedy for the
enforcement thereof shall be suspended and all proceedings
relative thereto pending before any court, tribunal, officer
or authority shall be stayed. A notification issued under
sub-section (1) of section 3 is renewable by like
notification from time to time for further periods not
exceeding twelve months at a time, so however that all the
periods the aggregate do not exceed fifteen years. It is
seen that the whole object of the Act is to subserve the
public interest and in particular to prevent unemployment or
to grant unemployment relief.
In the instant case the State of Maharashtra had
provided through SICOM which is virtually an agent of the
State Rs.52.30 lakhs by way of an advance to the appellant
company before the first notification was issued and at any
rate before the second notification was issued the State
Government itself had advanced Rs. 15,00,000 in addition to
what SICOM had advanced earlier. Hence the industry of the
appellant company was one to which any loan, guarantee or
other financial assistance had been provided by the State
Government. It is not clear how the High Court came to the
conclusion that such loan should have been granted "under"
the Act. There is no provision in the Act requiring that any
such loan should be granted under it before a declaration
may be made under section 3(1) thereof. If any such loan is
granted by the State Government to an industrial undertaking
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or guarantee or other financial assistance is given then it
may be declared as a relief undertaking. The conclusion of
the High Court is not, therefore, warranted by the
provisions of the statute.
It may also be noticed that a distinction has been made
in the Act between cases falling under sub-clause (ii) of
clause (a) of sub-section (1) of section 4 of the Act and
853
cases falling under sub-caluse (iv) of clause (a) of sub-
section (1) of section 4 of the Act. Sub-clause (ii) of
section 4(1)(a) of the Act refers to the agreements,
settlements, awards, standing orders made under the several
labour laws mentioned under the Schedule to the Act and
states that agreements etc. which may be applicable to a
relief undertaking before it was acquired or taken over by
the State Government or before any loan, guarantee or other
financial assistance was provided to it by or with the
approval of the State Government for being run as a relief
undertaking may be suspended in operation or shall, if so
directed by the State Government be applied with such
modifications as may be specified in the notification issued
for the said purpose. In this case the Act seems to resolve
a likely value conflict between loans given for running the
industry as a relief undertaking and the rights of workmen
under the agreements, awards etc. under the labour laws in
the Schedule. This sub-clause does not have anything to do
with sub-clause (iv) of section 4(1)(a) under which the case
of a creditor like respondent No.1 falls. Another
distinction which may be noticed is the difference between
the language in sub-clause (ii) of section 4(1)(a) and in
section 3. The former contains these words ’before any loan
guarantee or other financial assistance was provided to it
by or with the approval of the State Government for being
run as a relief undertaking’ (emphasis added). In section 3
we have these words "or to which any loan, guarantee, or
other financial assistance has been provided by the State
Government shall with effect from... be conducted to serve
as a measure or preventing unemployment or of unemployment
relief." (emphasis added). The only precondition for the
exercise of the power under section 3 is that loan must have
been advanced prior to the date of notification and it must
still be outstanding on that day. This is what leaps to the
eyes effortlessly on the mere opening of the eyes. On the
other hands section 3 does not say expressly or by
implication ’a loan etc. is given for being run as a relief
undertaking under this Act.’
Shri Shanti Bhushan, learned counsel for the respondent
No.1, very fairly stated that the order of the High Court
may be set aside and the case may be remanded to the High
Court to consider other points which had not been considered
by the learned Single Judge.
854
We are of the view that the decision of the High Court
that unless loan is advanced by the State Government under
the Act no declaration can be made under section 3 of the
Act is wholly erroneous. The judgment of the High Court
appears to be a very strained one and it is unfortunate that
the learned Single Judge committed an error in being carried
away by (putting it in the words of the learned Judge) the
"very neat and intelligent question of law" raised by the
counsel for the petitioner in the writ petition. The learned
Judge failed to evince awareness of the incalculable public
prejudice that was likely to be caused by the acceptance of
the said fallacious contention and to notice that the case
called for close and thorough consideration. The summary
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dismissal of the appeal which deserved to be allowed for the
mere asking of it by the Division Bench is equally
lamentable to say the least about it.
This appeal should therefore be allowed and the case
should be remanded to consider the other contentions of the
parties. These are the reasons for our order dated March 10,
1986.
M.L.A. Appeal allowed.
855