Justice STEIGMANN delivered the opinion of the court:
In December 1991, plaintiff, Union Bank (Bank), sued the Illinois Department of Agriculture, Bureau of Warehouses (Department), and the Blackstone Sunbury-Nevada Grain Company, Inc. (BSN), seeking declaratory and injunctive relief. After a bench trial, the court found in favor of the Bank. The Department appeals, and we reverse.
I. BACKGROUND
In 1989 and 1990, the Bank loaned money to BSN to operate...
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