Franza v. State, 43 N.Y.2d 102 (1977)

The State waives its immunity from suit and may be joined as a defendant in actions brought under Article 15 of the Real Property Actions and Proceedings Law (RPAPL) to determine claims to real property, including actions seeking to establish easements and related damages.

Summary

Plaintiffs, distributees of a deceased joint owner, sued the State in Supreme Court (later transferred to Surrogate’s Court) seeking partition of property and determination of easement rights after a state appropriation allegedly landlocked a portion of the original property. They claimed the State failed to provide promised access. The Court of Appeals held that the State, through RPAPL § 1541 and § 904, waived its sovereign immunity regarding actions to determine adverse claims to real property and partition actions, allowing the suit to proceed in a forum other than the Court of Claims. However, causes of action seeking rescission or reformation of the compensation agreement required a specific waiver of immunity not demonstrated here.

Facts

The plaintiffs, as distributees, brought an action in Surrogate’s Court regarding real property. A portion of the property was appropriated by the State in 1967. The plaintiffs contended that the appropriation created an easement of access over the taken parcel for the benefit of the remaining landlocked segment of the original property. The landowners allegedly entered into a compensation agreement with the State, with the understanding that the State would provide access to public highways for the landlocked segment. The State allegedly failed to provide the promised easement.

Procedural History

Plaintiffs filed suit in Supreme Court seeking partition, later amended to include claims against the State. The case was transferred to Surrogate’s Court. The State moved to dismiss for lack of jurisdiction, arguing exclusive jurisdiction in the Court of Claims. The Surrogate denied the motion. The Appellate Division modified the Surrogate’s order by dismissing the third, fourth, and fifth causes of action. The Court of Appeals affirmed the Appellate Division’s order.

Issue(s)

1. Whether the State has waived its immunity from suit and may be joined as a defendant in an action brought under Article 15 of the Real Property Actions and Proceedings Law to determine adverse claims to real property, including the establishment of an easement and related damages, in a forum other than the Court of Claims.
2. Whether the State has waived its immunity from suit in an action for partition of real property where the State owns a portion of the property subject to the partition action.
3. Whether claims for rescission or reformation of a compensation agreement with the State, or for specific performance requiring the State to provide an easement, can be brought outside the Court of Claims absent a specific waiver of immunity.

Holding

1. Yes, because RPAPL § 1541 expressly authorizes the joinder of the State as a defendant in actions to determine adverse claims to real property, constituting a waiver of immunity.
2. Yes, because RPAPL § 904 designates the State as a permissible defendant in an action for partition, thereby waiving immunity for such actions.
3. No, because actions seeking rescission or reformation of agreements with the State, or specific performance compelling State action, require a specific waiver of immunity not demonstrated here, and thus must be brought in the Court of Claims.

Court’s Reasoning

The Court reasoned that RPAPL § 1541 explicitly allows the State to be joined in actions to determine adverse claims to real property. This statutory provision acts as a waiver of the State’s sovereign immunity. The relief available under Article 15 includes declarations of validity of claims, cancellation or reformation of instruments, awards of possession, and damages. The court emphasized that whether the plaintiffs actually possessed an easement was the very issue to be resolved, and dismissing the claim prematurely would deny them the opportunity to prove their case. Citing RPAPL § 904, the court stated that the State is a permissible defendant in partition actions, resulting in a waiver of immunity regarding such actions. However, the court found no statutory basis for suing the state outside of the Court of Claims for actions seeking rescission/reformation of the compensation agreement or specific performance, noting, “For actions of such a nature no waiver of the State’s immunity permitting suit outside the Court of Claims has been demonstrated.”