Preamble
mengikut cara bekerja yang ditetapkan kecuali jika ada kebenaran bertulis daripada Pengarah Perhutanan Negeri Terengganu” (Exhibit D14). From its wordings condition 26.0 applies to a particular scheme known as “Skim Kilang Papan”. In such a scheme any timber from the licenced area must be processed either at the licensee’s own sawmill or at any sawmill within the state of Terengganu, where the licensee has a partnership with. Unless a written permission is obtained from the Director of Forestry of Terengganu, the timber logs cannot be processed at any other place. [30] To recapitulate, the learned Judge opined that because condition 26.0 of the licence has not been complied with and that condition was imposed on a licence issued under a law, the agreement between parties therefore tantamount to a contract, the consideration of which is forbidden by law under section 24(a) of the Contracts Act. Hence it was held by the learned Judge that the agreement for the sale of timber between the licensee (SP1) with the respondent which was made against the prohibition in condition 26.0 is a contract that falls under section 24(a) and therefore void. It follows, according to the learned Judge, that the sale from the respondent to the appellant would also be in breach of condition 26.0 and therefore is forbidden by law and against public policy. 18 [31] Having carefully considered the grounds of judgment of the learned Judge on this issue, we are constrained to observe that there are some flaws in the reasoning made. A condition imposed on a licence cannot be law as envisaged by section 24(a) simply for the reason that the licence is issued pursuant to a statute. Under section 24 a contract is void when the consideration or object of the agreement falls under any one of the clauses (a) to (e). A contract is unlawful under section 24(a) either for contravening a statute or at common law. The learned Judge in his judgment referred to learned author Visu Sinnadurai on Law of Contracts (Third Edition) and quoted paragraph 24.08, where learned author observed that the word ‘law’ in section 24(a) and (b) is not confined to instances of statutory infringement but covers by-laws, rules, regulations and other subsidiary legislation in force. The learned Judge however, failed to note that it was also opined by the learned author that a contravention of guidelines or administrative policy does not make a contract illegal for being a contract forbidden by law under section 24(a). Conditions imposed on a licence though issued under a law does not make them law. Thus, the agreement in question, even if it is in breach of condition 26.0 cannot fall within the category of an agreement, the consideration or the object of which is forbidden by law. Whether it is an agreement against public policy is quite something else. 19 [32] Before we embark on the issue of public policy, it would be pertinent to look into the illegality issue as found by the learned trial Judge. The learned trial Judge did not make a specific finding that there was a breach of condition 26.0 by either the respondent or the appellant or even the licensee in the first place. It would appear that the evidence relied upon by the learned Judge in holding that there was a breach of condition 26.0 was the testimony of Timbalan Pengarah Perhutanan Negeri Terengganu (SD1). He was the only witness who testified on matters relating to licence during the trial. [33] On our perusal of the appeal records we found, SD1’s testimonies did not affirmatively state that the contract for the sale of timber from the Concession Area by the licensee contravened condition 26.0. SD1 was never questioned directly on this point by the appellant’s counsel. In cross-examination in fact SD1 responded to say that he did not know for sure, if the licensee had breached condition 26.0. What he said was that he had no knowledge of any breach of conditions by the licensee because he was not aware of any complaint made of any breach by the licensee. At that same time he also said he had never issued any permission to take out timber pursuant to condition 26.0 during his tenure. The evidence on the breach of clause 26.0 by SD1 is neither here nor there. The learned Judge in our view had erred in concluding that both levels of agreements for the 20 sale of timber were in fact in breach of condition 26.0 in the first place, when there was no clear evidence to suggest so. [34] Now looking at the condition again, learned counsel for the respondent was correct that clause 26.0 is only binding on the licensee as a holder of the licence. It was imposed on SP1 as licensee and would only bind the licensee and not the respondent. Thus if the licensee had breached condition 26.0 he would face the consequence of it under the NFA. [35] It must be borne in mind that the conditions imposed on the licence would bind the holder of the licence and nobody else. Besides the licensee nobody else is privy to those conditions. Unlike law, these conditions are not within public domain. The learned trial Judge did not make affirmative finding as to why and how condition 26.0 was breached by the licensee as well as the respondent. Nothing was adduced in evidence if the respondent was even aware of such a condition. Having examined the appeal records in particular the testimonies of SD1 we have difficulties in agreeing with the learned trial Judge that a case of a breach of condition 26.0 has been clearly made out. The finding of the learned trial Judge that the contract is null and void for breach of condition 26.0 was not made on a proper finding of fact. The learned trial Judge had also erred in saying 21 that a breach of licence condition results in an illegal agreement for a breach of statute, under section 24(a). [36] We note the submission of learned counsel for the respondent that the agreement between parties in this appeal was preceded by two other sets of agreements. First, the contract between the State Authority of Terengganu with the licensee. Second, the agreement for the sale of timber between the licensee and the respondent. The condition imposed in clause 26.0 is within the knowledge of the licensee and no evidence was adduced to show that the respondent in entering into the agreement to purchase the timber from the licensee, was aware that there was condition 26.0 in existence. We agree with counsel for the respondent that this was not established in evidence. [37] In our view, the trial court was hampered in its role as a decider of facts because there were insufficient pleaded facts to support the issue of illegality. In this regard it is pertinent to note that, under O.18 r.8(1) of the Rules of Court 2012, a party is required to specifically plead any matter, for example, performance, release, any relevant statute of limitation, fraud or any fact showing illegality which he alleges, which cause the claim or the defence not maintainable, or which may take the opposite party by surprise, or which raises issues of fact not arising out of the pleadings. It 22 is patently clear that the defence by the appellant failed to plead any material fact to support allegation of illegality or public policy. The learned Judge had failed to make any finding of fact first of all to support a case of illegality. The learned trial Judge had merely assumed that there was a breach of the condition by the parties mainly because SD1 said he had never issued any authorisation pursuant to condition 26.0. [38] The learned trial Judge had therefore erred in holding that the agreement was illegal for two main reasons. There was no proper finding of breach of condition 26.0 and even if that condition is breached it is not breach of a statute and the agreement cannot be said to be an agreement forbidden by statute as envisaged by section 24. As we have earlier alluded to the learned trial Judge held that not only the agreement was forbidden by law but also against public policy. The learned trial Judge did not explain how a breach of condition 26.0 if any, caused the agreement to be void ab initio, for the reason of it being opposed to public policy. [39] It must be borne in mind that there is no definition of public policy under the Contracts Act. The scope and application of public policy has been the subject of some controversy. It was said that public policy is a “very unruly horse, and when once you get astride it you never know where it will carry you” (see Burrough J in the English case of Richardson 23 v Mellish (1824) 2 Bing 229). It is for the Court to define the scope of public policy under s. 24(e) of the Contracts Act. [40] The Federal Court had done so in Theresa Chong v Kin Khoon & Co. [1976] 2 MLJ 253. In that case, the plaintiff entered into an agreement with the defendant to engage her as a remisier. She was not registered with the Stock Exchange. It was contended that the agreement entered between them was against public policy since rules of Stock Exchange deals with public. It was found that the plaintiff who had acted as a remisier for the defendant was in contravention of the Stock Exchange Rules, which required all remisiers to be registered with the Stock Exchange. Despite non-registration the plaintiff in that case transacted a series of share dealings with the defendant. [41] It was contended that the contract between them was in violation of Stock Exchange Rules and was therefore illegal as being contrary to public policy. The Federal Court held that the Stock Exchange Rules is binding on the plaintiff but not the defendant. Not being registered as a remisier, is not contrary to public policy because the bye-laws of the Stock Exchange are the bye-laws of a private body which have no force of law. If the plaintiff was acting as an unregistered remisier then she was committing a breach of bye-law 97 of the Stock Exchange Rules which 24 provides for a penalty. But the dealing with such a remisier did not make the contract illegal as being opposed to public policy. [42] The Federal Court at page 25b in that case cited with approval the following passage in Cheshire and Fifoot’s Law of Contract (8th Edition): “First, although the rules already established by precedent must be moulded to fit the new conditions of a changing world, it is no longer legitimate for the Courts to invent a new head of public policy. A judge is not free to speculate upon what, in his opinion, is for the good of the community. He must be content to apply, either directly or by way of analogy, the principles laid down in previous decisions. He must expound, not expand, this particular branch of the law. Secondly, even though the contract is one which prima facie falls under one of the recognized heads of public policy, it will not be held illegal unless its harmful qualities are indisputable. The doctrine, as Lord Atkin remarked in a leading case [1938] AC 1, ‘should only be invoked in clear cases in which the harm to the public is substantially uncontestable, and does not depend upon the idiosyncratic inferences of a few judicial minds … In popular language … the contract should be given the benefit of the doubt.” 25 [43] In Merong Mahawangsa (supra) the above principle was reiterated. It was held by the Federal Court that it is contrary to public policy that a person be engaged for a valuable consideration to use his position and interest to procure a benefit from the government because the sale of influence engenders corruption. The RM20 million consideration in the agreement by way of a letter of undertaking was intended to secure a bridge project of the government where the plaintiff pleaded that he used his influence and good relation to procure the said project. Such a contract was found to be void under section 24(e) for being a contract which is illegal for offending public policy. [44] Thus in each case it would therefore be necessary to identify with precision the nature of the public policy that may be called into question. In the transaction between the parties in this appeal, nothing in particular was addressed by the appellant either in the pleadings or in the submission before us. In this respect, the only allegation of breach of condition 26.0 is that the respondent had bought the timber from the licensee without the necessary approval. An approval is required under condition 26.0 when the licensee did not process the timber at its own sawmill or at a sawmill where the licensee has a joint venture with. 26 [45] It has been the submission of learned appellant’s counsel that if an agreement in breach of condition imposed on the licence is permitted it will defeat the law which prohibits the taking of forest produce except under a licence issued under the NFA, and upon the conditions contained in the said licence. To allow a person who is in clear violation of this provision to claim from this unlawful act, is against public policy. Such a submission in our view is totally misconceived. [46] It must be made clear that the NFA prohibits the general taking out of forest produce unless made under a valid license. The timber in question is indeed a forest produce which can be taken out as in this case, because the licensee has been granted with the licensee in exhibits 14 and 15. Thus this is not a case where the timber logs were taken out without license, which would have made it illegal under the NFA. [47] We are here dealing with a condition on the license under clause 26.0 which prohibits the processing of timber in some other sawmill that do not belong to the licensee, as opposed to a prohibition against the taking out of forest produce. Whilst it is not difficult to appreciate the underlying reason for the prohibition against taking out of forest produce, we are in no position to understand the underlying public policy reason for condition 26.0. It is not for the Court to speculate upon what, in its opinion 27 is for the good of the community underlying that prohibition. The Court must be content to apply, either directly or by way of analogy, the principles laid down in previous decisions as to what a public issue is. The Court must expound, not expand this particular branch of the law. There was no evidence adduced in this appeal as to what was the public policy that has been called into question for the timber to be sold or be processed in any other place than the sawmill owned or jointly owned by the licensee. In such event, in our view the decision of the learned trial Judge on this point, remained pure speculation and was not substantiated by any foundation. Such finding is therefore unsustainable. Thus for all the above reasons we are not able to concur with the learned trial Judge’s view that the contract is illegal and void. [48] Having found that a case of illegality had not been made out by the appellant, it would no longer be necessary for us to deal with the legal remedy under section 66 or the issue on unjust enrichment. We are however in agreement with the learned trial Judge on his finding of liability against the appellant as we have no reason to disturb the finding of facts made. We affirmed the decision of the learned Judge and agreed that the claim of the respondent had been established on a balance of probabilities. We therefore dismissed the appeal of the appellant with costs. 28 signed ROHANA YUSUF Judge Court of Appeal Malaysia Dated: 04 July 2018 Counsel for the Appellant: Wong Fook Yong Messrs. Wong, Law & Ti A-23, Tingkat 1, 2 & 3 Lorong Sri Kuantan 2 Sri Kuantan Square, Jalan Teluk Sisek 25000 Kuantan Pahang Darul Makmur Counsel for the Respondent: KS Pang Messrs. K.S. Pang & Co Unit 8-02, 8th Floor, Menara TJB 80000 Johor Bahru Johor