21 down
Legal
action
that
may
be
taken
on
by
boarder
(4)
Legal action that may be taken on by boarder (4)
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The definition is at the beginning of the clue.
How the clue works
See Legal action at the start — that's your first definition, giving CASE, as in a legal proceeding brought before a court. Then that may be taken on by boarder is a second, separate definition, painting a case as a suitcase that a passenger carries on board with them.