Department of Housing Preservation & Development v. 849 St. Nicholas Equities

141 Misc. 2d 258, 532 N.Y.S.2d 674, 1988 N.Y. Misc. LEXIS 589
CourtCivil Court of the City of New York
DecidedSeptember 7, 1988
StatusPublished
Cited by4 cases

This text of 141 Misc. 2d 258 (Department of Housing Preservation & Development v. 849 St. Nicholas Equities) is published on Counsel Stack Legal Research, covering Civil Court of the City of New York primary law. Counsel Stack provides free access to over 12 million legal documents including statutes, case law, regulations, and constitutions.

Bluebook
Department of Housing Preservation & Development v. 849 St. Nicholas Equities, 141 Misc. 2d 258, 532 N.Y.S.2d 674, 1988 N.Y. Misc. LEXIS 589 (N.Y. Super. Ct. 1988).

Opinion

OPINION OF THE COURT

Lewis R. Friedman, J.

New York City adopted an Emergency Repair Program (ERP) in 1965 based on the powers of the Department of Health to remove nuisances. In 1971 ERP was revised (Local Laws, 1971, No. 10 of City of New York) to enable the city, when it determines "that because of any violation of this [title] [Housing Maintenance Code (HMC)] or other applicable law, any dwelling or part of its premises is dangerous to human life and safety or detrimental to health” (Administra[262]*262tive Code of City of New York § 27-2125 [a] [formerly § D2654.01 (a)]), to remove the conditions. The HMC contains a comprehensive scheme for the city’s recoupment of those expenses by (1) creating a lien on the property; (2) permitting levies on rents; and (3) permitting actions against the owners. Major revisions to the recoupment scheme were adopted in 1974 (Local Laws, 1974, No. 48 of City of New York). While the procedures used by the city are not widely known, the liens imposed are familiar to all conveyancers of realty. This series of cases, consolidated only for the purpose of decision, presents several important questions, not previously discussed in the reported cases, the ERP recoupment mechanism.

THE STRUCTURE OF THE STATUTE

It is important to understand the statutes which permit the city to correct dangerous conditions in residential buildings before analyzing the specific problems in these cases.1

It has long been the rule that the city may remove dangerous conditions designated as nuisances from real property (see, Lawton v Steele, 119 NY 226, affd 152 US 133) and charge the owner for the costs of removal (Gregory v Mayor of City of N. Y., 40 NY 273, 276; Lane v City of Mount Vernon, 38 NY2d 344, 348-349; cf., City of Buffalo v Dankner, 48 AD2d 572). It may also force the owner to do the removal (Health Dept. v Rector of Trinity Church, 145 NY 32, 45). "The right of summary abatement of nuisances without judicial process or proceeding, was an established principle of the common law long before the adoption of our Constitution” (Lawton v Steele, supra, 119 NY, at 235). That practice has repeatedly been held to be constitutional (Lane v City of Mount Vernon, supra; Matter of 300 W. 154th St. Realty Co. v Department of Bldgs., 55 Misc 2d 37, affd 30 AD2d 351, mod on other grounds 26 NY2d 538).

The common-law power is the basis for several statutory provisions. Thus, the Department of Buildings (DOB) may commence an unsafe building (UB) proceeding in Supreme Court where a building is in imminent danger of collapse or is dangerous to occupants or passersby. (Administrative Code [263]*263§ 26-247 et seq.; see, Various Tenants of 515 E. 12th St. v 515 E. 12th St., 128 Misc 2d 235, 237.) In a UB proceeding, DOB obtains an order requiring the owner to remove certain dangerous conditions; in the event of noncompliance, the city demolishes the structure (see, e.g., Mazelis v Wallerstein, 51 AD2d 579).

The Legislature also provided that DOB could order the owner to repair nuisances and, upon the failure to comply, appoint a receiver (Multiple Dwelling Law § 309 [4], [5], added by L 1962, ch 492). The courts had upheld the predecessor to that section (Adamec v Post, 273 NY 250, 255-257); although, some subsequent amendments concerning lien priority (L 1937, ch 353) were found invalid (Central Sav. Bank v City of New York, 279 NY 266, 278-279, cert denied 306 US 661). The Court of Appeals has held the appointment of a receiver under Multiple Dwelling Law § 309 to remedy unsafe conditions to be a valid exercise of police power (Matter of Department of Bldgs. [Philco Realty Corp.], 14 NY2d 291).

As another alternative to the drastic UB proceeding, which applies only to seriously dilapidated buildings, the Administrative Code had long permitted the Department of Health to designate buildings or conditions in them as nuisances and to order the removal of the condition. Upon failure of the owner to comply, the Department of Health or a designated agency could remedy the condition (see, Administrative Code former §§ 565-15.0 — 564-31.0, 556-10.0; NY City Charter § 563). Those provisions have long been upheld as valid (Matter of Barkin [Department of Health], 189 Misc 358).

Originally ERP was adopted without formal legislative sanction; on January 29, 1965, a very broad resolution was promulgated by the Board of Health. DOB was designated to remove health nuisances which included a lack of heat, hot water, electricity, proper sanitation and the like. Under the recoupment provisions of the Administrative Code, the owner was responsible for the costs of "nuisance” removal; there could also be levies on rents owed by tenants. The ERP structure was found valid as long as, in certain circumstances, the owner received notice to remedy the conditions before the city acted (Matter of 300 W. 154th St. Realty Co. v Department of Bldgs., supra). ERP was originally used to remedy many forms of dangerous conditions in buildings; although some practices, such as hiring striking building service personnel to provide essential services, were found invalid (Matter of Bozart Realty Corp. v City of New York, 65 Misc 2d 55).

[264]*264The City Council finally adopted the ERP as part of the city’s code enforcement program administered by the Department of Housing Preservation and Development (DHPD) and its predecessor, rather than by DOB and the Corporation Counsel. ERP is now a vehicle for providing repairs and supplies, such as heating fuel, when the owner has abdicated responsibility for the well-being of the structure or the tenants. The program is grounded in the well-founded belief that homelessness can be prevented for those whose "shelter” would be taken by irresponsible, recalcitrant owners. More than a decade before the current homeless crisis, the city understood that small expenditures, on an emergency basis, could be used to assist hapless tenants survive in deteriorating premises.

Once DHPD determines that a threshold condition exists, it may, without court order, do the repairs itself or order the owner to do them (Administrative Code § 27-2125 [a]); alternatively, it may seek a court order (§ 27-2127 [a]) to compel the owner to do the repairs or to authorize DHPD do them (see, Matter of Department of Hous. Preservation & Dev. v Cohen, 128 Misc 2d 351). The choice is a matter of administrative discretion (Bolden v Mayor of City of N. Y., NYLJ, Mar. 3, 1970, at 16, col 3 [Sup Ct, NY County]; Prince v Mayor of City of N. Y., NYLJ, Mar. 12, 1970, at 2, col 3 [Sup Ct, NY County]). The application for a court order permits DHPD to reach the mortgagees and lienors of record, as well as the owner, and gives interested persons the right, with court approval, to post a bond permitting them to do the necessary repairs under court supervision (§ 27-2127 [b], [e], [f]).

Regardless of the method which DHPD utilizes to implement repairs to the premises, "[a]ll expenses * * * shall constitute a debt recoverable from the owner and a lien upon the building and lot, and upon the rents and other income thereof’ (Administrative Code § 27-2128).

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Bluebook (online)
141 Misc. 2d 258, 532 N.Y.S.2d 674, 1988 N.Y. Misc. LEXIS 589, Counsel Stack Legal Research, https://law.counselstack.com/opinion/department-of-housing-preservation-development-v-849-st-nicholas-nycivct-1988.