Court of Appeal holds charter cities exempt from public healthcare worker rest break protections: Levy v. City and County of San Francisco

In Levy v. City and County of San Francisco (2025) 114 Cal.App.5th 997, the Court of Appeal (First Appellate District, Division Four) held that Lab. Code § 512.1, which extends meal and rest break protections to certain public healthcare workers, does not apply to charter cities like San Francisco.

The City and County of San Francisco, operating as a consolidated charter city, negotiated a Memorandum of Understanding (MOU) with Plaintiffs’ union. This MOU specified meal and rest break provisions that differed substantially from the Labor Code, covering a period after section 512.1’s effective date. Plaintiffs, nurses employed by the City, filed a putative class action alleging violations of meal and rest break requirements and seeking unpaid premiums. The trial court sustained Defendant’s demurrer without leave to amend, concluding that § 512.1 does not apply to charter cities. Plaintiffs appealed.

The Court of Appeal affirmed the demurrer. It first established San Francisco’s constitutional status as a charter city. The court found that the terms “counties,” “political subdivisions,” and “municipalities” used in § 512.1 do not clearly apply to the City. The court then reinforced this interpretation by noting that the statute’s legislative history referencing “matters of statewide concern” was insufficient to supersede the home rule doctrine, especially since established case law holds that meal and rest breaks are not matters of statewide concern for charter cities.

The court further noted that the Legislature knows how to explicitly include charter cities when intended, pointing to Labor Code § 1182.14, which expressly applies to charter cities and counties, as a point of contrast. Additionally, the court noted the existence of § 555, which applies several other statutes within the same chapter of the Labor Code to “cities which are cities and counties.” The court reasoned that if the Legislature intended § 512.1 to apply to San Francisco, it could have amended § 555 to include a reference to § 512.1. Finally, the court referenced the canon of constitutional avoidance as it declined to interpret the statute broadly in favor of employees, sticking instead to a clear intent standard.

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