'Free From Doubt'? The border between charity and the state in the British National Health Service, 1948-74.

Abstract

Britain's National Health Service (NHS) is widely regarded as epitomizing statist healthcare. However, before its launch in 1948, Britain had a 'mixed economy of welfare' in which charity loomed large, most notably in the voluntary hospitals. This article examines the legacy of this charitable past in the NHS's early decades. Although at its foundation, the Minister of Health, Aneurin Bevan, was determined that the NHS should end reliance on the 'caprice of private charity', political considerations meant that teaching hospitals retained their charitable wealth. Bevan's policy was that the Exchequer would cover all 'ordinary expenditure', with voluntary reserves used only for special purposes, including research, additional comforts and amenities. Thus, a theoretical border between state-funded essentials and charitably financed inessentials was drawn for hospitals in the early welfare state. This article asks whether this border held true in practice. Its method is a comparative history of three case studies: St Bartholomew's Hospital in London, the United Sheffield Hospitals, and the Royal Infirmary of Edinburgh. We present quantitative and qualitative analysis of endowment expenditure between 1948 and the NHS's reorganization in 1974. Our findings demonstrate that expectations of a simple division between essential and non-essential aspects of healthcare proved naïve. Charitable spending notionally on research, amenities, and equipment was soon geared to clinical care. It also sustained capital programmes, disproportionately advantaging those hospitals with large inherited assets. Hospital charity also served as a rhetorical and visual device, promoting an ideal of humane care and legitimizing the place of voluntarism within the NHS.