Gerard v. Orange Coast Mem. Medical Center ( 2018 )


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    IN THE SUPREME COURT OF
    CALIFORNIA
    JAZMINA GERARD et al.,
    Plaintiffs and Appellants,
    v.
    ORANGE COAST MEMORIAL MEDICAL CENTER,
    Defendant and Respondent.
    S241655
    Fourth Appellate District, Division Three
    G048039
    Orange County Superior Court
    30-2008-00096591
    December 10, 2018
    Justice Liu authored the opinion of the court, in which Chief
    Justice Cantil-Sakauye and Justices Chin, Corrigan, Cuéllar,
    Kruger, and Siggins * concurred.
    *
    Presiding Justice of the Court of Appeal, First Appellate
    District, Division Three assigned by the Chief Justice pursuant
    to article VI, section 6 of the California Constitution.
    GERARD v. ORANGE COAST MEMORIAL MEDICAL CENTER
    S241655
    Opinion of the Court by Liu, J.
    The Labor Code generally provides that employees who
    work more than five hours must be provided with a 30-minute
    meal period and that employees who work more than 10 hours
    must be provided with an additional 30-minute meal period.
    (Lab. Code, § 512, subd. (a); all undesignated statutory
    references are to this code.) An employee who works no more
    than six hours may waive the meal period, and an employee
    who works no more than 12 hours may waive the second meal
    period. (Ibid.) A wage order of the Industrial Welfare
    Commission (IWC) permits health care employees to waive the
    second meal period even if they have worked more than 12
    hours. The hospital that is the defendant in this case allowed
    employees working shifts longer than 12 hours to waive the
    second meal period, and the employees who are the plaintiffs
    here waived their second meal periods. Plaintiffs now claim
    that the IWC order permitting them to waive second meal
    periods for shifts greater than 12 hours violates the Labor
    Code and that the hospital must pay back wages and penalties
    for unlawfully permitting waiver of the second meal period.
    Considering the relevant statutory and regulatory provisions
    in light of their history, we agree with the Court of Appeal that
    the IWC order does not violate the Labor Code.
    1
    I.
    Plaintiffs Jazmina Gerard, Kristiane McElroy, and
    Jeffrey Carl are health care workers who were formerly
    employed by defendant Orange Coast Memorial Medical
    Center (Hospital). According to their complaint, plaintiffs
    usually worked 12-hour shifts and sometimes worked shifts
    longer than 12 hours. A Hospital policy allowed health care
    employees who worked shifts longer than 10 hours caring for
    patients to voluntarily waive one of their two meal periods,
    even if their shifts lasted more than 12 hours. Plaintiffs
    alleged they signed second meal period waivers and
    occasionally worked shifts longer than 12 hours without being
    provided a second meal period. Plaintiffs contended that these
    second meal period waivers violated the Labor Code, and they
    sought penalties, unpaid wages, and injunctive relief for those
    and other violations. Gerard alleged claims on her own behalf
    and on behalf of others in the form of a private attorney
    general action. (Lab. Code, § 2698, et seq. (Labor Code Private
    Attorneys General Act of 2004 or PAGA).) McElroy and Carl
    also alleged claims on their own behalf and on behalf of others
    in the form of a class action. (Code Civ. Proc., § 382.)
    The Hospital asserted as an affirmative defense that the
    meal period waivers had conformed to the applicable IWC
    wage order. The Hospital moved for summary judgment
    against Gerard on all of her individual and PAGA claims,
    asserting that there was no disputed issue of material fact as
    to the cause of action for meal period violations because the
    plaintiffs were provided meal periods as required by law. The
    trial court granted the Hospital’s motion for summary
    judgment and its subsequent motion to deny class certification.
    Plaintiffs appealed.
    2
    As explained in greater detail below, the Court of Appeal
    initially reversed the trial court, holding that although the
    meal period waivers were obtained in conformity with the
    applicable wage order, that wage order violated a provision of
    the Labor Code generally prohibiting second meal period
    waivers for employees working shifts longer than 12 hours.
    We granted the Hospital’s petition for review and transferred
    the case to the Court of Appeal with directions to consider
    recently enacted legislation that was potentially pertinent to
    the case. The Court of Appeal subsequently reversed course
    and affirmed the trial court’s rulings in favor of the Hospital.
    We then granted plaintiffs’ petition for review.
    II
    Wage and hour claims, including claims regarding the
    availability and timing of meal breaks, are “governed by two
    complementary and occasionally overlapping sources of
    authority: the provisions of the Labor Code, enacted by the
    Legislature, and a series of 18 wage orders, adopted by the
    IWC.” (Brinker Restaurant Corp. v. Superior Court (2012) 
    53 Cal. 4th 1004
    , 1026 (Brinker).) “To the extent a wage order and
    a statute overlap, we will seek to harmonize them, as we would
    with any two statutes.” (Id. at p. 1027.) But because the
    Legislature is the source of the IWC’s authority, a provision of
    the Labor Code will prevail over a wage order if there is a
    conflict. (See 
    id. at p.
    1026; California Hotel & Motel Assn. v.
    Industrial Welfare Com. (1979) 
    25 Cal. 3d 200
    , 207–209.)
    In June 1993, at the urging of the health care industry,
    the IWC amended Wage Order 5–1989 to add subdivision
    11(C), which permitted health care employees who worked
    shifts longer than eight hours to waive a second meal period.
    3
    (Official Notice, Amends. to §§ 2, 3, & 11 of IWC Order No. 5–
    89 (June 30, 1993).) As the IWC’s Statement as to the Basis of
    Amendments explained: “The petitioner requested the IWC to
    allow employees in the health care industry who work shifts in
    excess of eight (8) total hours in a workday to waive their right
    to ‘any’ meal period . . . as long as certain protective conditions
    were met. The vast majority of employees testifying at public
    hearings supported the IWC’s proposal with respect to such a
    waiver, but only insofar as waiving ‘a’ meal period or ‘one’ meal
    period, not ‘any’ meal period. Since the waiver of one meal
    period allows employees freedom of choice combined with the
    protection of at least one meal period on a long shift, on June
    29, 1993, the IWC adopted language which permits employees
    to waive a second meal period provided the waiver is
    documented in a written agreement voluntarily signed by both
    the employee and the employer, and the waiver is revocable by
    the employee at any time by providing the employer at least
    one day’s notice.” (Ibid.)
    In 1999, the Legislature enacted Assembly Bill No. 60
    (AB 60), known as the Eight-Hour-Day Restoration and
    Workplace Flexibility Act of 1999. This bill was passed in
    response to IWC wage orders that had eliminated overtime for
    employees working more than eight hours per day. The
    legislation repealed five wage orders, including Wage Order
    No. 5 covering the health care industry, and required the IWC
    to review its wage orders and readopt orders restoring daily
    overtime. (See 
    Brinker, supra
    , 53 Cal.4th at p. 1045.) The
    Legislature amended Labor Code section 510 to explicitly
    provide that “[a]ny work in excess of eight hours in one
    workday . . . shall be compensated at the rate of no less than
    one and one-half times the regular rate of pay for an
    4
    employee.” (Stats. 1999, ch. 134, § 4; compare stats. 1982,
    ch. 185, § 1 [earlier version of section 510 without that
    provision].) Section 511 was added to allow employers and
    employees to agree on an alternative workweek that permitted
    employees to work up to 10 hours per day within a 40-hour
    week without the obligation to pay overtime. AB 60 also added
    section 512, which for the first time set out statutory meal
    period requirements. (Brinker, at p. 1045.) Subdivision (a) of
    section 512 (section 512(a)) states in relevant part: “An
    employer may not employ an employee for a work period of
    more than 10 hours per day without providing the employee
    with a second meal period of not less than 30 minutes, except
    that if the total hours worked is no more than 12 hours, the
    second meal period may be waived by mutual consent of the
    employer and the employee only if the first meal period was
    not waived.” (Italics added.)
    Further, AB 60 added section 516, which stated:
    “Notwithstanding any other provision of law, the [IWC] may
    adopt or amend working condition orders with respect to break
    periods, meal periods, and days of rest for any workers in
    California consistent with the health and welfare of those
    workers.” (Stats. 1999, ch. 134, § 10, italics added.) And AB
    60 added section 517, which states in pertinent part in
    subdivision (a): “The Industrial Welfare Commission shall, at
    a public hearing to be concluded by July 1, 2000, adopt wage,
    hours, and working conditions orders consistent with this
    chapter without convening wage boards, which orders shall be
    final and conclusive for all purposes.”
    Consistent with that mandate, the IWC adopted a new
    version of Wage Order No. 5 on June 30, 2000, and it became
    effective on October 1, 2000. Section 11(D) of Wage Order No.
    5
    5 essentially readopted former section 11(C) discussed above:
    “Notwithstanding any other provision of this order, employees
    in the health care industry who work shifts in excess of eight
    (8) total hours in a workday may voluntarily waive their right
    to one of their two meal periods.”
    After section 11(D) was adopted, but before it became
    effective, the Legislature enacted Senate Bill No. 88 (SB 88),
    which among other things expanded the class of employees
    exempt from overtime to include certain computer software
    and nursing professionals. (See §§ 515, subd. (f), 515.5; Stats.
    2000, ch. 492, §§ 2–3.) SB 88 also amended section 516 to say:
    “Except as provided in Section 512, the [IWC] may adopt or
    amend working condition orders with respect to break periods
    [and] meal periods . . . .” (Stats. 2000, ch. 492, § 4, italics
    added.)
    The present litigation challenged the validity of section
    11(D), and the Court of Appeal invalidated the provision in
    Gerard v. Orange Coast Memorial Medical Center (2015) 
    234 Cal. App. 4th 285
    , review granted May 20, 2015, S225205
    (Gerard I). As the Court of Appeal here explained: “In Gerard
    I we held . . . section 11(D) invalid to the extent it sanctions
    second meal period waivers for health care employees who
    work shifts of more than 12 hours, because it conflicts with
    section 512(a) which allows such waivers only if the total hours
    worked is no more than 12 hours. Moreover, we held the IWC
    exceeded its authority by enacting . . . section 11(D), because it
    created an additional exception for health care workers,
    beyond the second meal period waiver exception in section
    512(a), all in violation of section 516(a). For these reasons, we
    concluded hospital’s second meal period waiver policy violates
    sections 512(a) and 516(a) and is invalid.” (Gerard v. Orange
    6
    Coast Memorial Medical Center (2017) 9 Cal.App.5th 1204,
    1210 (Gerard II).)
    After Gerard I, the Legislature further amended section
    516 with Senate Bill No. 327 (SB 327). The previous language
    requiring the IWC to conform to section 512 was retained but
    labeled as subdivision (a), and a new subdivision (b) was
    added, stating: “Notwithstanding subdivision (a), or any other
    law, including Section 512, the health care employee meal
    period waiver provisions in Section 11(D) of [IWC] Wage
    Orders 4 and 5 were valid and enforceable on and after October
    1, 2000, and continue to be valid and enforceable. This
    subdivision is declarative of, and clarifies, existing law.”
    (Stats. 2015, ch. 506, § 2.)
    SB 327 also stated as legislative findings:              “The
    Legislature finds and declares the following: [¶] (a) From 1993
    through 2000, [IWC] Wage Orders 4 and 5 contained special
    meal period waiver rules for employees in the health care
    industry. Employees were allowed to waive voluntarily one of
    the two meal periods on shifts exceeding 12 hours. On June
    30, 2000, the [IWC] adopted regulations allowing those rules to
    continue in place. Since that time, employees in the health
    care industry and their employers have relied on those rules to
    allow employees to waive voluntarily one of their two meal
    periods on shifts exceeding 12 hours. [¶] (b) Given the
    uncertainty caused by a recent appellate court decision, Gerard
    v. Orange Coast Memorial Medical Center (2015) 
    234 Cal. App. 4th 285
    , without immediate clarification, hospitals
    will alter scheduling practices.” (Stats. 2015, ch. 506, § 1.)
    SB 327 also contained an urgency provision: “This act is
    an urgency statute necessary for the immediate preservation of
    7
    the public peace, health, or safety within the meaning of
    Article IV of the Constitution and shall go into immediate
    effect. The facts constituting the necessity are: [¶] In order to
    confirm and clarify the law applicable to meal period waivers
    for employees in the health care industry throughout the state,
    it is necessary that this act take effect immediately.” (Stats.
    2015, ch. 506, § 3.)
    SB 327 was supported not only by hospitals and
    healthcare organizations but also by health care employee
    unions. The United Nurses Association of California/Union of
    Health Care Professionals (UNAC) stated: “Under this wage
    order provision, UNAC members have for years enjoyed the
    flexibility of alternate work schedules, which allows for greater
    staffing flexibility and better patient care. Patient outcomes
    are dramatically improved in environments where the nurses
    and other health care professionals can place priority on the
    needs of their patients without interruption by an arbitrary
    meal period when the shift runs long. (RNs are generally able
    to eat during work time in break rooms.)” (Assem. Com. on
    Labor & Employment, Bill Analysis of Sen. Bill No. 327 (2015–
    2016 Reg.Sess.) Sept. 8, 2015, p. 8.) UNAC commented that
    “[Gerard I] will result in a severe disruption of the lives of our
    members, many of whom have built a schedule of work, child
    care, and other obligations around the ability to waive a second
    meal period.” (Ibid.)
    At the same time as the Legislature was acting, the
    Hospital petitioned this court to review Gerard I, supported by
    amici letters from UNAC and Service Employees International
    Union Local 121RN. We granted the petition and transferred
    the cause to the Court of Appeal with directions to vacate the
    8
    decision and to reconsider the cause in light of the enactment
    of SB 327.
    On remand, the Court of Appeal concluded it had erred in
    Gerard I: “The lynchpin of our analysis was the conclusion
    that . . . section 11(D) conflicts with section 512(a). However,
    in reaching this conclusion we failed to account for a subtle but
    critical distinction in administrative law—the date an agency
    regulation or order is adopted is not the same as the date it
    becomes effective. (Compare Gov. Code, § 11346, et seq.
    [‘Procedure for Adoption of Regulations’ . . . ] with Gov. Code, §
    11343.4, subd. (a) [adopted regulations filed with Secretary of
    State ‘become effective’ in accordance with prescribed schedule]
    . . . ; also compare § 1173 [authorizing the IWC to ‘adopt an
    order’] with § 1184 [adopted order ‘shall be effective . . . not less
    than 60 days from the date of publication’] . . . .) Long-settled
    case law validates the distinction between the adoption date
    and the effective date. (See, e.g., Ross v. Bd. of Retirement of
    Alameda County Employees’ Retirement Assn. (1949) 
    92 Cal. App. 2d 188
    , 193.)
    “In this case, . . . the [SB] 88 amendment to section
    516(a) took away the IWC’s authority to adopt wage orders
    inconsistent with the second meal period requirements of
    section 512(a) as of September 19, 2000. But the IWC had
    already adopted . . . section 11(D) on June 30, 2000, under the
    [AB] 60 version of section 516(a) which authorized the IWC to
    do so ‘notwithstanding’ section 512(a). Thus, the [SB] 88
    amended version of section 516(a) should have been irrelevant
    to our analysis in Gerard I. Instead, it became dispositive. We
    concluded . . . section 11(D) is subject to the [SB] 88 amended
    version of section 516(a). It isn’t.” (Gerard 
    II, supra
    , 9
    Cal.App.5th at pp. 1210–1211.) The court therefore concluded
    9
    that “the IWC did not exceed its authority by adopting . . .
    section 11(D), and hospital’s second meal period waiver policy
    does not violate section 512(a).” (Id. at p. 1211.)
    To summarize this chronology:          The IWC in 1993
    amended Wage Order 5 with section 11(C), allowing health
    care employees who work more than eight hours in a shift to
    waive a second meal period. In 1999, AB 60 provided in Labor
    Code section 512 that employees could only waive the second
    meal period if they worked 12 hours or less, but also provided
    in former section 516 that the IWC could adopt or amend wage
    orders with respect to meal periods “notwithstanding any other
    provision of law” as long as the order was consistent with the
    health and welfare of the employees. In 2000, the IWC
    adopted section 11(D), which, like 11(C), permitted health care
    workers who work more than eight hours to waive a second
    meal period. Also in 2000, after section 11(D) was adopted but
    before it went into effect, the Legislature enacted SB 88, which
    required IWC wage orders to be consistent with section 512.
    Eight years later, this litigation challenged the validity of the
    second meal period waivers of health care employees working
    shifts greater than 12 hours. In Gerard I, the Court of Appeal
    held that such waivers are invalid because section 11(D)
    violated sections 512 and 516. In response, the Legislature
    enacted SB 327, declaring the meal waiver provisions for
    health care employees in Wage Order No. 5 valid and
    enforceable. We granted the Hospital’s petition for review and
    transferred the case to the Court of Appeal. The Court of
    Appeal in Gerard II reversed itself, and we granted Gerard’s
    petition for review.
    10
    III.
    Plaintiffs do not dispute the distinction between the
    adoption of a wage order and its effective date, or that the
    amended version of section 516 does not apply to wage orders
    that had already been adopted. Indeed, the text of amended
    section 516 qualifies the IWC’s authority to adopt wage orders
    going forward, but it contains no terms invalidating wage
    orders already adopted: “Except as provided in Section 512,
    the [IWC] may adopt or amend working condition orders with
    respect to break periods [and] meal periods . . . .” (Stats. 2000,
    ch. 492, § 4, italics added.) But plaintiffs contend that the IWC
    lacked authority to adopt section 11(D) because even under the
    version of section 516 in effect at the time the wage order was
    adopted, section 512(a) limited the IWC’s authority to permit
    meal period waivers.
    Plaintiffs’ argument is based principally on section 517’s
    language that IWC wage orders adopted by July 1, 2000, must
    be “consistent with this chapter,” that is, consistent with the
    provisions of AB 60. (Stats. 1999, ch. 134, § 11.) “ ‘[C]onsistent
    with this chapter,’ ” plaintiffs contend, “included a requirement
    that the IWC wage order be consistent with section 512 from
    the moment the Eight-Hour-Day Restoration and Workplace
    Flexibility Act of 1999 was enacted. Section 516 specifically
    granted the IWC authority to adopt wage orders related to
    meal periods, but did not grant authority to disregard the
    minimum standards established in the Act in section 512.”
    Plaintiffs construe the phrase “notwithstanding any other
    provision of law” in former section 516 narrowly: “The correct
    reading is that the IWC was authorized to adopt orders as to
    break periods and meal periods even if another law limited
    11
    IWC’s authority to adopt such orders, not that the IWC could
    disregard all existing law in exercising its authority.”
    This reading of the statutory language is unpersuasive.
    It ignores the broad sweep of the phrase “notwithstanding any
    other provision of law.” (Arias v. Superior Court (2009) 
    46 Cal. 4th 969
    , 983, italics omitted [describing “notwithstanding
    any other provision of law” as a “ ‘ “term of art” ’ [citation] that
    declares the legislative intent to override all contrary law”].)
    We need not define the outermost parameters of the phrase in
    order to conclude that there is no reason to read it in former
    section 516 to exclude from its scope the law regarding meal
    periods found in section 512(a). The two provisions were
    adopted simultaneously as part of the same legislation and in
    order to further a common purpose. Moreover, at the time the
    IWC adopted the disputed wage order, the phrase “consistent
    with this chapter” in section 517 meant consistency not only
    with section 512(a) but also with former section 516, which by
    its terms authorized the IWC to make rules about meal periods
    “notwithstanding any other provision of law.”
    The more natural way to reconcile the phrases
    “notwithstanding any other provision of law” of former section
    516 and “consistent with this chapter” in section 517 is to give
    them their literal meaning. The main purpose of AB 60, the
    Eight Hour Day Restoration Workplace Flexibility Act of 1999,
    was to restore overtime for a nonexempt employee working
    more than eight hours a day. “[C]onsistent with this chapter”
    means that IWC orders going forward can no longer disregard
    daily overtime. But even as AB 60 limited the discretion of the
    IWC in that and other respects, it explicitly retained in former
    section    516     the   IWC’s      rulemaking      prerogative,
    “notwithstanding any other provision of law,” with respect to
    12
    “break periods, meal periods and days of rest,” limited only by
    a requirement that any rules be “consistent with the health
    and welfare” of affected workers. (Stats. 1999, ch. 134, § 10.)
    Read literally, the “notwithstanding” phrase undoubtedly
    gives broad powers to the IWC. That literal reading makes
    sense in this context. The Legislature’s broad delegation to the
    IWC is consistent with its recognition that the IWC is
    constitutionally authorized (Cal. Const., art. XIV, § 1), and has
    been long understood to have the power, to adopt rules nearly
    co-equal to legislative enactments. (See 
    Brinker, supra
    , 53
    Cal.4th at pp. 1026–1027.) Only after section 11(D) was
    adopted did the Legislature, through SB 88, further limit the
    IWC’s discretion by requiring any rules about meal periods to
    be consistent with section 512. Accordingly, we reject Gerard’s
    statutory argument and the related argument that section
    11(D) was beyond the scope of the authority that the
    Legislature conferred on the IWC. (See Agnew v. State Bd. of
    Equalization (1999) 
    21 Cal. 4th 310
    , 321.)
    Plaintiffs cite Brinker and a Court of Appeal case for the
    proposition that the IWC may not exercise its authority under
    section 516 in ways that contravene section 512. (
    Brinker, supra
    , 53 Cal.4th at p. 1043; Bearden v. U.S. Borax, Inc. (2006)
    
    138 Cal. App. 4th 429
    , 438.) But those cases concern the
    meaning of section 516 after SB 88 went into effect, not the
    meaning of former section 516.
    Plaintiffs also cite the legislative history of SB 88. The
    Senate Third Reading analysis of SB 88 states: “This bill
    clarifies two provisions of the Labor Code enacted in Chapter
    134. Labor Code Section 512 codifies the duty of an employer
    to provide employees with meal periods. Labor Code section
    13
    516 establishes the authority of IWC to adopt or amend
    working condition orders with respect to break periods, meal
    periods, and days of rest. This bill provides that IWC’s
    authority to adopt or amend orders under Section 516 must be
    consistent with the specific provisions of Labor Code Section
    512.” (Sen. Com. on Lab. & Employment, Sen. 3d Reading of
    Sen. Bill 88 (1999–2000 Reg. Sess.) as amended Aug. 10, 2000,
    p. 5.) According to plaintiffs, the word “clarifies” means that
    amended section 516 merely declared existing law and that it
    was never the Legislature’s intent to authorize the IWC to
    permit meal period waivers other than as provided in section
    512.
    Whether an amendment represents a change in the law
    or merely a declaration of existing law is a question of
    interpreting existing law, a task that ultimately belongs to the
    judiciary. (McClung v. Employment Dev. Dept. (2004) 
    34 Cal. 4th 467
    , 472–474.) A legislative statement that a statute
    declares or amends existing law is not binding on courts, which
    must make their own determination. (Id. at pp. 473–476; see
    Coker v. JPMorgan Chase Bank, N.A. (2016) 
    62 Cal. 4th 667
    ,
    690.) In this case, it is clear that SB 88’s amendment of former
    section 516 worked a change in the law.              Before the
    amendment, the IWC had the authority to adopt orders
    concerning meal periods “notwithstanding any other provision
    of law,” including section 512. After the amendment, the IWC
    could no longer deviate from the meal period requirements of
    section 512. (See 
    Brinker, supra
    , 53 Cal.4th at pp. 1042–1043.)
    Moreover, although SB 88 was an urgency statute, there
    is no indication that the reason for the urgency was to prevent
    section 11(D) from going into effect. The restriction on the
    IWC’s authority with respect to meal period waivers was only
    14
    one part of SB 88; the bill also addressed, among other things,
    the exemption of certain computer software professionals and a
    certain class of certified nurse midwives, nurse anesthetists,
    and nurse practitioners from overtime pay. (Stats. 2000,
    ch. 492, §§ 2–3.) The stated reason for the urgency legislation
    was to enact these exemptions: “In order, at the earliest
    possible time, to protect businesses that rely on the computer
    industry as well as certain vital health care professions, it is
    necessary for this act to take effect immediately.” (Id., § 5.)
    Plaintiffs also invoke the principle that wage orders and
    statutes should be harmonized where possible. (See 
    Brinker, supra
    , 53 Cal.4th at p. 1027.) They propose to harmonize the
    wage order and statute as follows: Section 512 authorizes
    second meal period waivers for shifts up to 12 hours, whereas
    wage order No. 5 authorizes waivers of second meal periods for
    shifts over 8 hours but says nothing explicitly about shifts over
    12 hours. The way to harmonize these two provisions, they
    say, is to read the wage order as only authorizing waivers for
    shifts of 8 to 12 hours.         We find this interpretation
    unpersuasive.       The language of former section 516
    (“Notwithstanding any other provision of law, the Industrial
    Welfare Commission may adopt . . . .”) already dictates the
    relationship between the wage order and the statutory scheme,
    directing that the order take precedence. We decline to insert
    limitations into the wage order where none appear.
    The parties argue at length about the significance of SB
    327. Plaintiffs point to SB 327’s declaration that SB 88’s
    amendment of former section 516 did not intend to
    countermand the IWC’s already adopted wage order. This
    legislative declaration is not binding on the courts. (See
    
    McClung, supra
    , 34 Cal.4th at pp. 472–473.) Nevertheless, for
    15
    reasons discussed above, we independently conclude that SB
    88 did not undo section 11(D) of Wage Order No. 5 permitting
    health care workers who work more than eight hours to waive
    a second meal period. The Legislature, when it enacted SB 88,
    did not second-guess the IWC’s determination that allowing
    health care employees to waive a second meal period is
    consistent with promoting their health and welfare.
    Since 2000, the Legislature has amended section 512
    several times to exempt various classes of employees covered
    by collective bargaining agreements from the prohibition
    against the waiver of second meal periods for employees
    working more than 12 hours. These include certain classes of
    bakery workers (Stats. 2003, ch. 207 (A.B.330), § 1), motion
    picture or broadcast employees (Stats. 2005, ch. 414
    (A.B.1734), § 1), and certain construction employees,
    commercial drivers, security officers, and utility employees
    (Stats. 2010, ch. 662 (A.B.569), § 1). Thus, although the
    Legislature has determined that waiver of a second meal
    period for employees working more than eight hours is
    generally contrary to public policy, it has not applied that rule
    inflexibly to all categories of employees. This is consistent
    with our conclusion that the Legislature, in prospectively
    requiring IWC wage orders to be consistent with section
    512(a), did not intend to disturb the extant exemption for
    health care workers based on the IWC’s determination that the
    exemption promoted the health and welfare of those workers.
    16
    CONCLUSION
    We affirm the judgment of the Court of Appeal.
    LIU, J.
    We Concur:
    CANTIL-SAKAUYE, C. J.
    CHIN, J.
    CORRIGAN, J.
    CUÉLLAR, J.
    KRUGER, J.
    SIGGINS,                                                    J. *
    *
    Presiding Justice of the Court of Appeal, First Appellate
    District, Division Three assigned by the Chief Justice pursuant
    to article VI, section 6 of the California Constitution.
    17
    See next page for addresses and telephone numbers for counsel who argued in Supreme Court.
    Name of Opinion Gerard v. Orange Coast Memorial Medical Center
    __________________________________________________________________________________
    Unpublished Opinion
    Original Appeal
    Original Proceeding
    Review Granted XXX 9 Cal.App.5th 1204
    Rehearing Granted
    __________________________________________________________________________________
    Opinion No. S241655
    Date Filed: December 10, 2018
    __________________________________________________________________________________
    Court: Superior
    County: Orange
    Judge: Nancy Wieben Stock
    __________________________________________________________________________________
    Counsel:
    Law Offices of Mark Yablonovich, Mark Yablonovich; Capstone Law, Glenn A. Danas, Robert K. Friedl,
    Arlene M. Turinchak and Ryan H. Wu for Plaintiffs and Appellants.
    Sheppard, Mullin, Richter & Hampton, Richard J. Simmons, Derek R. Havel, Daniel J. McQueen, Robert J.
    Stumpf, Jr., and Karin Dougan Vogel for Defendant and Respondent.
    Seyfarth Shaw, Jeffrey A. Berman, James M. Harris and Kiran A. Seldon for California Hospital
    Association as Amicus Curiae on behalf of Defendant and Respondent.
    Counsel who argued in Supreme Court (not intended for publication with opinion):
    Ryan H. Wu
    Capstone Law
    1875 Century Park East, Suite 1000
    Los Angeles, CA 90067
    (310) 556-4811
    Richard J. Simmons
    Sheppard, Mullin, Richter & Hampton
    333 South Hope Street, 43rd Floor
    Los Angeles, CA 90071
    (213) 620-1780