In a bowl, combine beef, bacon, onion, salt and pepper.
Shape into four oval patties; brown in a skillet over medium heat. Remove patties and keep warm.
Drain all but 1 tbl drippings; saute green pepper and onion in drippings until tender.
Add tomatoes, bay leaves, sugar, celery salt, salt and pepper.
Combine water and flour until smooth; add to tomato mixture, stirring constantly. Bring to a boil; cook and stir for 2 minutes. Return patties to gravy. Reduce heat; cover and simmer for 30 minutes. Uncover and simmer 10 minutes longer. Remove the bay leaves.