How to Think about Health Promotion Ethics

Abstract

Health promotion ethics is moral deliberation about health promotion and its practice. Although academics and practitioners have been writing about ethics, and especially values, in health promotion for decades, health promotion ethics is now regaining attention within the broader literature on public health ethics. Health promotion is difficult to define, and this has implications for health promotion ethics. Health promotion can be approached in two complementary ways: as a normative ideal, and as a practice. We consider the normative ideal of health promotion to be that aspect of public health practice that is particularly concerned with the equity of social arrangements: it imagines that social arrangements can be altered to make things better for everyone, whatever their health risks, and seeks to achieve this in collaboration with citizens. This raises two main ethical questions. First: what is a good society? And then: what should health promotion contribute to a good society? The practice of health promotion varies widely. Discussion of its ethical implications has addressed four main issues: the potential for health promotion to limit or increase the freedom of individuals; health promotion as a source of collective benefit; the possibility that health promotion strategies might “blame the victim” or stigmatise those who are disabled, sick or at higher risk of disease; and the importance of distributing the benefits of health promotion fairly. Different people will make different moral evaluations on each of these issues in a way that is informed by, and informs, their vision of a good society and their understanding of the ends of health promotion. We conclude that future work in health promotion ethics will require thoughtfully connecting social and political philosophy with an applied, empirically informed ethics of practice.

Full text

1 Public Health Reviews, Vol. 34, No 1
How to Think about Health Promotion Ethics
Stacy M. Carter, BAppSci, MPH(Hons), PhD,1
Alan Cribb, BA, PhD,2
John P. Allegrante, BS, MS, PhD3,4
ABSTRACT
Health promotion ethics is moral deliberation about health promotion and its prac-
tice. Although academics and practitioners have been writing about ethics, and
especially values, in health promotion for decades, health promotion ethics is now
regaining attention within the broader literature on public health ethics. Health
promotion is difcult to dene, and this has implications for health promotion
ethics. Health promotion can be approached in two complementary ways: as a
normative ideal, and as a practice. We consider the normative ideal of health
promotion to be that aspect of public health practice that is particularly concerned
with the equity of social arrangements: it imagines that social arrangements can be
altered to make things better for everyone, whatever their health risks, and seeks to
achieve this in collaboration with citizens. This raises two main ethical questions.
First: what is a good society? And then: what should health promotion contribute to
a good society? The practice of health promotion varies widely. Discussion of its
ethical implications has addressed four main issues: the potential for health
promotion to limit or increase the freedom of individuals; health promotion as a
source of collective benet; the possibility that health promotion strategies might
“blame the victim” or stigmatise those who are disabled, sick or at higher risk of
disease; and the importance of distributing the benets of health promotion fairly.
Different people will make different moral evaluations on each of these issues in a
way that is informed by, and informs, their vision of a good society and their
understanding of the ends of health promotion. We conclude that future work in
1 NHMRC Career Development Fellow, Centre for Values, Ethics and the Law in Medicine,
School of Public Health, The University of Sydney, Australia.
2 Professor of Bioethics and Education, Centre for Public Policy Research, King’s College,
London, UK.
3 Professor of Health Education and Deputy Provost, Teachers College, Columbia University,
USA.
4 Adjunct Professor of Sociomedical Sciences in Public Health, Mailman School of Public
Health, Columbia University, USA.
Corresponding Author Contact Information: Stacy M. Carter at stacy.carter@sydney.edu.
au; NHMRC Career Development Fellow, Centre for Values, Ethics and the Law in Medicine,
School of Public Health, The University of Sydney, NSW 2006, Australia.

2 Public Health Reviews, Vol. 34, No 1
health promotion ethics will require thoughtfully connecting social and political
philosophy with an applied, empirically informed ethics of practice.
Key Words: Ethics, health education, health promotion, moral philosophy, political
philosophy, public health
Suggested Citation: Carter SM, Cribb A, Allegrante JP. How to think about health
promotion ethics. Public Health Reviews. 2012;34: epub ahead of print.
HOW TO THINK ABOUT HEALTH PROMOTION ETHICS
Ethics is the discipline devoted to moral reasoning about what we should
do. It is traditionally divided into: meta-ethics, concerned with fundamental
questions like “what is good?” and “what are convincing ethical arguments?”;
normative ethics, focused on rules, frameworks or principles for evaluation;
and practical ethics, concerned with the ethics of practices such as
regulating, policing, teaching or medical care.1 Health promotion ethics is a
form of practical ethics.
A substantial literature in bioethics—the practical ethics of medicine
and biotechnology—has existed since the 1960s.2 The public health ethics
literature grew rapidly from 2000,3-13 initially focused on crises such as
pandemics and bioterrorism.14 A small formal and informal literature on
health promotion ethics15-22 and values23-27 has existed for some time,i but
has recently regained attention within public health ethics. Our purpose is
to survey key issues in health promotion ethics, and suggest approaches
needed for this eld to ourish.
Dening health promotion is notoriously difcult.26,29-32 In some juris-
dictions health promotion is an occupational category, so health promotion
could be “what those practitioners do.” But many others promote health,
within and beyond public health and medical systems, and health promotion
ethics should arguably also be relevant to them. Complicating matters
further, conditions that do promote health may not be implemented to
promote health.33 Public transportation, urban design and the structure of
markets can promote or undermine health without that intention; a country’s
political culture and system can inuence the determinants of health
independent of a formal “health promotion” sector.34,35 This makes a
discussion of health promotion ethics slippery: should we focus only on
activities dened as health promotion, or should we include all activities
i Practitioners’ extensive debate about values in health promotion has often occurred in online
forums, so may not be captured in the literature.28

How to think about health promotion ethics 3
that promote health?33 Finally, the boundaries between health promotion
and the rest of public health are unclear, so health promotion ethics and
public health ethics may not be meaningfully different. There is no absolute
solution to these problems: we can only suggest a working conception of
health promotion. To do this, we will distinguish between health promotion
as a normative ideal, and health promotion as it is practiced. These can, but
do not always, overlap.
The normative ideal of health promotion arises from a 30-year-old
discourse, found in the Alma-Ata Declaration, the World Health Organization
(WHO) “Global Strategy for Health for All by the Year 2000,” and the
Ottawa Charter for Health Promotion.23,36,37 Bauman and colleagues suggest
that Alma-Ata and “Health for All” created health promotion out of health
education,ii promoting a then-radical account of health as more a product of
social conditions than of clinical services, and emphasising equity,
empowerment and justice.26,29,38,39 The Ottawa Charter powerfully asserted
this account, listing “fundamental conditions and resources for health” as
“peace, shelter, education, food, income, a stable eco-system, sustainable
resources, social justice, and equity.”23 We think this ideal form of health
promotion has two main distinguishing characteristics. The rst is its vision
of citizens: as active participants in and potential authors of their own
health, people with whom health promotion practitioners should work
directly and, to some extent, be guided by when forming goals and strategies.
The second is its focus on increasing the equitable availability of the
conditions and resources that improve health, including through structural
change and advocacy.iii,34 Although this will at times overlap with risk
reduction strategies, it emphasises primary prevention: promoting health
for everyone, whether they are at low or high risk of developing disease.43
On this idealised account, health promotion becomes that aspect of public
health practice that is particularly concerned with the equity of social
arrangements: it imagines that social arrangements can be altered to make
things better for everyone, whatever their health risks, and seeks to achieve
this in collaboration with citizens.
As it is impossible to cleanly separate health promotion from other
aspects of public health, much of what follows will be relevant to public
health in general. Our idealised account of health promotion is intended to
reect its character, rather than provide a watertight denition; analysing or
ii The role of a health educator was clearer, of a health promoter looser. So it may have been
easier to develop a procedural ethic for health education than for health promotion.20
iii This initial commitment may now be diluted by neoliberal individualism and behaviourism.26,40-42

4 Public Health Reviews, Vol. 34, No 1
defending it in detail is beyond the scope of this paper. Instead we will
focus on two underlying ethical questions:
1. What is a good society?
2. What should health promotion contribute to a good society?
These questions are relevant to practitioners, but also to anyone interested
in health as a moral concern, or in health promotion as a political or social
enterprise.
The practice of health promotion varies globally and is not always
consistent with the idealised account.26,43,44 Because practice cannot be
predicted from the ideal, health promotion ethics needs to engage the diversity
of health promotion practices. Thus, in the latter part of the paper, we ask a
third question: What ethical issues arise in activities intended to promote
health? Answers to this question are relevant to anyone who attempts to
improve the health of communities, including health promotion practitioners.
WHAT IS A GOOD SOCIETY?
Here we present an abridged account of some versions of the good society
that appear in the public health and health promotion ethics literature. Most
of these draw on political or moral philosophy. They are relevant because
the intention to promote health or related good things can only be evaluated
against our conception of a good society.
In one version of the good society, the population as a whole is made as
healthy as possible using available resources. This utilitarian view prioritises
maximising population health without much concern about who benets or
misses out. An alternative good society, strongest in American scholarship,
emphasises the liberty of citizens as the most important good. This vision
arises from libertarianism and some forms of liberalism, and only condones
interventions designed to stop individuals from harming each other.45
Another tradition, “justice as fairness,” builds on the work of John Rawls to
focus on fair distribution of good things (whether health, quality of life,
wellbeing, money or opportunities), with a particular concern for the least
well-off.46 Yet another good society, drawing on classical Greek scholarship,
emphasises the ability of citizens to participate actively in local civic life
and live in accordance with their values.47 A tradition in Western European
scholarship emphasises solidarity—willingness to stand together, share
burdens and help one another—as an important characteristic of a good
society.48,49 Although we have disaggregated these visions to clarify their
differences, in practice they often overlap or cluster. The normative ideal of
health promotion corresponds to certain visions of the good society,

How to think about health promotion ethics 5
particularly to the idea that a good society is a just society. The Ottawa
Charter, for instance, strongly asserts the importance of equity.23 The ideal
also resonates with traditions that emphasise civic virtue and solidarity.
However, because ideals and practices are not always aligned, none of these
values can be taken for granted in practice.42,43
WHAT SHOULD HEALTH PROMOTION CONTRIBUTE TO A
GOOD SOCIETY?
What should the goals of health promotion be? Or: what should health
promotion contribute to a good society? The answer might seem obvious:
health promotion should promote health, so what health promotion should
contribute to a good society is improved health.
This is not straightforward, however, because there is little agreement
about how health should be dened.38 We discuss denitions of health in
this section not to derive the perfect denition, but because a useful working
denition is needed, for two reasons.29 First: so health can be distinguished
from other good things, to allow precision about goals. When are we
seeking to improve health? When to provide different good things? How is
health related to these other good things? Second: so that activities that
either promote health or are intended to promote health can be identied,
because these, at least in one sense, constitute health promotion.
In the late 1970s, denitions of health were divided into two main
camps: “negative” and “positive”.29,30,50 Christopher Boorse sought to
develop a value-free, or “biostatistical” denition,51 based on functions
such as reproduction or survival. Those with “functional abilities below
typical efciency” were diseased;51 health was the absence of such disease
(thus a “negative” denition).iv On this denition, health promotion would
entail, e.g., nding individuals with below-typical reproductive function,
and improving their function to typical levels. In stark contrast, the 1978
Declaration of Alma-Ata applied the WHO’s 1946 “positive” denition of
health as “a state of complete physical, mental and social wellbeing, and
not merely the absence of disease or inrmity.”36,53,v On this denition,
iv This account is much criticised (e.g., as relying on relative judgements and ignoring things
we commonly understand as health).29,52
v This account is also much criticised: e.g., Bok argues “it has been variously called masterful
or dysfunctional, profound or meaningless; defended as indispensable in its present formulation,
seen as needing revision, or rejected as inviting the medicalization of most of human existence
and abuses of state power in the name of health promotion.”54

6 Public Health Reviews, Vol. 34, No 1
health promotion is charged with enabling every citizen to attain complete
wellbeing.26 This stirring aspiration is an impossible task, and set health
promotion up for an inevitable gap between rhetoric and practice.55,vi
More recent “mid-range” or “welfare” denitions of health sit between
the negative biostatistical and positive wellbeing accounts.29,30 In the late
1980s, Lennart Nordenfelt dened health as the ability to “full vital
goals.”56 Vital goals were those that, when fullled, allowed a person to
experience a minimum acceptable degree of welfare in the long term.vii,viii
David Seedhouse, later but similarly, dened health as the conditions that
allowed people to work towards, or to full, their “realistic chosen and
biological potentials.”58 His main point was that health promotion must
accept an open-ended conception of health:59 health will be different for
each person, because each person’s chosen potential is different, reecting
their values. These denitions, admirably, allow space for individuals to
live the life they choose. But they are practically problematic. They would
require that health promotion either employ strategies compatible with
vi David Buchanan wrote extensively about wellbeing as an end in health promotion.47 In
philosophy, an “end” is good in itself; a “means” is good because it will get you something
else that is good. Buchanan critiqued the WHO denition for conating health and wellbeing,
and for suggesting health was an end in itself. Health, he argued, is an instrumental good like
money: simply a means to greater ends, not to be pursued for its own sake. Buchanan proposed
we should strive not for health, but for eudaimonia, a complex concept from classical Greek
scholarship, which involves the ability to evaluate one’s own desires. “The good life”
Buchanan argues, “is the life spent seeking clearer understandings of values we think
important to realise and striving to live our lives more closely attuned to those values.”47 What
matters is to cultivate, in citizens, the mindfulness and wisdom required to continuously
consider their own values and live in keeping with them. Buchanan makes this argument to
resist what he sees as the rise of scientically dened, individualistic, biomedical goals in
health promotion, an over-emphasis on bodily health as an end in itself rather than a means.
Buchanan’s theory is inspiring, with much to offer, but does not clarify why health promotion
should be the institution charged with the monumental goal of creating wise citizens.
vii This introduces normative questions, e.g.: What should count as a vital goal? What level of
welfare is an acceptable minimum? Might we underestimate this minimum because we have
lowered our expectations? Who gets to decide?
viii Venkatapuram recently combined Nordenfelt’s account with Nussbaum’s work to dene
vital goals. Nussbaum argued that a dignied human life required the ability to achieve all of
the following, to a reasonable threshold: life, bodily health, bodily integrity (i.e., freedom
from torture and other violence), to be able to use one’s senses, imagination, thought and
emotions, to be able to reason about one’s life goals, to have opportunity for sympathetic
bonds with other humans and concern towards other species, to be able to play, and to have
control over one’s environment. Venkatapuram proposed that these can be thought of as vital
goals: thus health is the ability to achieve a reasonable threshold of each of them. However,
like the WHO denition, this account is extremely broad, so may not help distinguish the
goals of health promotion from those of other practices, or health policy from public policy in
general.52,57

How to think about health promotion ethics 7
everyone’s goals or potentials—likely to be impossible—or so tailored to
individual goals that health promotion could only be delivered in a one-to-
one relationship, and could no longer engage in advocacy, structural or
community-level change.
More recently other authors—Alan Cribb,29 and Madison Powers and
Ruth Faden60—have produced denitions that better distinguish health
from competing goods, and thus better identify health-promoting activities.
We will characterise these denitions as useful, restricted and contextualised.
Cribb summarises like this:
“It seems to me that if we stick fairly close to the biomedical con-
ception [of health] but combine aspects of wider conceptions with it
we get close to a workable model of health which allows us to
prevent some of the extremes of indeterminacy. I tend to use “health”
to refer to “the absence of illness” where illness refers roughly to the
object of healthcare practice rather than that of clinical science...”29
Cribb’s, and Powers and Faden’s, denitions have similar characteristics.
They are useful, rather than absolute. They restrict health to the domains of
the body and the objects of healthcare (loosely, what health means in
ordinary language). And they connect this narrower denition to a context.
Cribb argues that health must be understood as social and as only one of
many “goods”. Health policy is part of public policy more broadly and is
likely to deliver benets other than health, and health must be weighed
against other gains from policy decisions. Health is also social: it is socially
determined, understood in a social and historical context, and negotiated in
social relationships.29 Thus we can retain a narrow denition of health but
recognise it is socially caused and connected. Powers and Faden, meanwhile,
set their restricted denition of health into a broader denition of human
wellbeing. Health, for them, is just one of six dimensions of wellbeing: the
other ve are: personal security, reasoning, respect, attachment and self-
determination. Everyone, they propose, has something like a fundamental
right to achieve a sufcient threshold of each of these dimensions: a just
society will provide this. The role of public institutions is to serve social
justice, that is, to work towards sufcient wellbeing, in each of its six
dimensions, for everyone.ix Individual public institutions might specialise in
one dimension (e.g., health), but they must, overall, be committed to social
justice, which means that they should not promote their “specialist”
dimension while undermining other dimensions (e.g., they should not
encourage disrespect for obese people to improve population health).60 This
approach discourages blindly pursuing population health as an end in itself.47
ix Like Nordenfelt’s denition, this raises the question of how such a threshold can be identied.

8 Public Health Reviews, Vol. 34, No 1
These recent denitions of health suggest an overarching goal and a more
specic objective for health promotion practice. The overarching goal would
be to help ensure sufcient wellbeing in all its dimensions for everyone (that
is, to work for social justice).60,x The specic objective of health promotion
would be to improve health, understood via a useful and restricted denition
set in a social context and in the context of the other dimensions of wellbeing.
Given the overwhelming evidence that health is socially as well as biologically
determined, the goal of health improvement will often need to be achieved
via the mechanism of broader economic and social improve ment.61,62 How-
ever, a restricted denition prevents health promotion practitioners or others
from doing whatever they please in the name of health, and requires at least
a credible explanation of how an intervention might improve health.29,61,63
These denitions also highlight the moral importance of considering the non-
health consequences of health promotion actions, as health policy is only one
aspect of public policy, and health should not be pursued at the expense of
other dimensions of wellbeing.33,60
WHAT ETHICAL ISSUES ARISE IN ACTIVITIES INTENDED TO
PROMOTE HEALTH?
Thus far we have identied broad ethical currents underlying the normative
ideal of health promotion. These currents—especially those around ideas
of justice and community—are arguably the core values that health
promotion practitioners use to explain and justify their practices.43 We have
also begun to indicate some potential gaps between ideals and practices. In
particular we have argued that, when it comes to practice, the concerns with
justice and community embedded in early health promotion discourses
should be disentangled from an open-ended conception of health, and
instead connected to a useful, restricted and contextualised conception.
In this section we focus on ethical debates in health promotion practice.
These debates reect, and feed into, the two issues we have already
considered: visions of the good society, and the proper goals of health
promotion.xi Ethical discussions about the practice of health promotion can
x Powers and Faden argue that public institutions are obliged to work towards justice. While
health promotion may be more explicitly committed to justice in its rhetoric, in their view all
aspects of public health, as a public institution, should serve justice.
xi “Reection” is thus a two way process: answers to health promotion practice dilemmas will
reect a vision of health promotion and the good society; conversely these visions should be
engaged with everyday practice.

How to think about health promotion ethics 9
be gathered loosely under four intersecting themes, echoing the value
tensions rehearsed above. Considered together, they question whether and
how ideals of justice and community can be operationalised in real-world
contexts without unacceptable ethical costs. Although they intersect, we
will discuss them separately:
1. how health promotion might impinge on, or enhance, the freedom or
autonomy of citizens;
2. health promotion as a source of collective goods or benets;
3. victim blaming and stigmatisation; and
4. how the benets of health promotion are distributed.
Two more general observations about ethics in health promotion
practice; rst, doing health promotion ethics requires using and critiquing
evidence.64,65 Outcomes or consequences (especially benets and harms)
are central to ethical evaluation. However, the evidence base in health
promotion, particularly regarding the effects of complex interventions, is
often limited,64,66 so decisions must be taken in the context of uncertainty.
Second, ethical reasoning requires more than recourse to codes of ethics.
Close attention to the strengths and weakness of ethical arguments and to
the meaning of concepts is needed.64 There are several codes of ethics in
this eld (e.g.67-70). Their purpose is to codify—to provide a condensed list
of rules for action—and their brevity makes them useful for busy pract-
itioners. However, they are most useful when seen as prompts to, and not
substitutes for, moral deliberation.
Health promotion and the freedom or autonomy of citizens
An early and central concern in health promotion ethics, particularly in
American scholarship, has been incursion on freedoms or liberties that
matter to individuals.18,71-74 Individual freedom is undoubtedly morally
important; this is most clearly recognised in Western liberal democracies.
In clinical ethics, respect for autonomy—generally operationalised as
consent—marks out this area of concern.75 But in health promotion, consent
is harder to rely on: it is difcult to know what should be consented to, who
should consent, and what should be done when there is no community
consensus.33
Empowerment has often been suggested as a health promotion strategy
to respect freedom. Here Braunack-Mayer’s analysis is useful.84 She
argues—consistent with our discussion above—that the proper end of health

10 Public Health Reviews, Vol. 34, No 1
promotion is health improvement: empowerment is simply a means.xii
Empowerment may not be achievable; empowerment strategies may assist
some community members to dominate others, or encourage them to
demand ineffective or harmful interventions, a concern echoed by prac-
titioners.70 So empowerment should not be pursued as an end in itself.
Instead, expert or “top down” health promotion judgements, informed by
theory and experience, should be informed by “bottom up” judgements of
community groups, and vice versa, until a reective equilibrium is reached.
Empowerment thus becomes a means for reaching this equilibrium, not a
go-to strategy for protecting freedom.84
So if empowerment cannot help us solve the problem of incursions on
freedom, what might? The early literature in particular focused on
identifying—and arguing against—actions likely to undermine freedom.
These authors tend to work with a particular, limited, version of freedom,
referred to as “negative freedom”: the freedom to be left alone, or not to be
interfered with.xiii,78 They worry about persuasion (encouraging people to do
or believe something through argument), coercion (imposing on the will of
others using threats or force), or most notoriously, paternalism. Paternalism
gathers several, usually three, meanings into a single word: interfering with
a person’s autonomy or liberty, doing so without their consent, and doing so
for their own good.xiv,76 It is possible to justify all of these, depending on our
view of a good society, and on the particular case.45,77
Persuasion is the easiest action to justify. Alastair Campbell, for
example, argues that persuasion can respect people’s autonomy if we are
clear that we are persuading, do not distort the facts, argue overtly rather
than inuence covertly, and remain independent of vested interests.79
Although respectful persuasion is clearly possible, many health social
marketing campaigns instead engage in what Campbell calls “indoctrination,”
usually in the name of “cut through” in a competitive media market.
xii This parallels sociological critiques of health promotion. “Positive” sounding discourses
around empowerment or enablement are often, in practice, embedded in power hierarchies,
systems of surveillance and restrictive conceptions of ends. So we have to examine both ideals
and practices, asking what vision of a good society they assume and what they produce in the
social world.
xiii Basic liberties, and non-interference in them, are very important (e.g., freedom from
wrongful imprisonment or torture, and freedom of political expression.) Unfortunately
arguments focused on negative freedoms tend to suggest that more trivial freedoms, such as
the freedom to make unfettered consumer choices, are of equivalent moral importance to these
much more signicant freedoms.
xiv In political discourse paternalism is often equated with a “nanny state”.

How to think about health promotion ethics 11
Coercion is a different matter. It is generally accepted that public health
interventions should use the least coercive means available,80 and for good
reason: past coercive policies (e.g., forcing people to have HIV tests early in
the epidemic) frequently undermined trust in public health as an institution.4
Health promotion is not immune: for example, employees might be forced to
participate in a workplace health exercise program.16 So when might coercion
or paternalism be justied?xv The most common allowances are in instances
where interventions stop people from harming one another rather than from
harming themselves (e.g., mandatory immunisation schemes to prevent
hospital staff from infecting their patients and families or school children
from infecting their peers), or when interventions interfere with actions that
are ill-informed, or involuntary, or more controversially, not in keeping with
a person’s most deeply-held goals.38,76,xvi Such conditions can be used to
evaluate interventions, but they work best for those—like the workplace
health program—where something is being done directly to individuals.
They are less helpful for the structural, community or advocacy interventions
that we have suggested might characterise health promotion. One could
argue, for example, that high fat, high sugar foods should be regulated
because individual consumers do not fully understand the risks, or do not
mean to buy these foods, or that eating them is inconsistent with what they
really want for their life. But these are difcult to demonstrate convincingly,
and matter most to those, such as libertarians, who hold negative freedom—
the freedom to be left alone—to be the most important moral end.
There is an alternative that is more compatible with health promotion: the
capability approach.57,85,86 The capability approach contends that people
should be free to achieve wellbeing, and that this relies on them having real
opportunities to live and to act in accordance with their values.85,xvii The
capability approach encourages us to assess both the opportunities available
to individuals, and those available to a whole community or nation. And it
approaches freedom quite differently to the approaches described above. It
does not assume that individuals should be completely independent, or that
their most important interest is to be left alone. Rather, it emphasises that
xv Dworkins’ typology of more or less justiable paternalisms is generally considered the
standard.81
xvi In Western liberal state policy, “Nudge” is currently inuential, employing an allegedly
unproblematic type of paternalism, “libertarian paternalism,” and based in behavioural
economics and cognitive psychology.82 See detailed analysis and responses in the American
Journal of Bioethics.83
xvii Writers in the capabilities approach would say “to be and to do” in accordance with their
values. Martha Nussbaum’s list of “central capabilities” required for a dignied human life is
provided in Note viii.

12 Public Health Reviews, Vol. 34, No 1
people’s autonomy depends on their social, relational and political environ-
ment, and that they have a moral stake in that environment providing them
with real opportunities, including the opportunity to be healthy. Thus, for
example, rather than reducing our freedom, state taxation, subsidies and
regulations that make it easier and cheaper to buy healthier food could
provide real opportunities to be healthy, something that most people value.xviii
Autonomy remains important, but a more sophisticated conceptualisation
alters the discussion of freedom. Instead of asking “is this health promotion
strategy instituting a paternalistic nanny state?” we are encouraged to ask “is
this health promotion strategy providing individuals and communities with
real opportunities that they are likely to value?”
Health promotion as a source of collective goods or benets
Collective actions and collective goods have particular moral signicance
for health promotion, because its ideal form has emphasised community.
This emphasis appears to be a present source of tension in health promotion.
Health promotion is commonly criticised for becoming increasingly
individualistic;26,40-42,88 simultaneously practitioners afrm their commitment
to working with and for communities.43,70
We will deal with individualism in the next section, but rst consider
arguments regarding the moral signicance of community. There is a long
tradition of valuing community in political and moral philosophy; this is
becoming increasingly prominent in public health and health promotion
ethics.89,90 It reects a vision of the good society in which shared values, the
common good or solidarity are important and, as in the capability approach,
people are thought of as potentially beneting from, not just being
threatened by, the fact that they live in a community.
This is, in part, about the existence and benet of collective goods.
There is a type of collective good that is simply the sum of individual goods
(e.g., a lower average HIV prevalence in the population is the sum of many
individuals not having HIV). But there is another kind of collective good
that is greater than the sum of its parts: goods that can only exist through
collective action, and which exist at a collective level. Widdows and Cordell
suggest that these goods can be identied as the ones that we think of as
xviii Libertarians often suggest that the only way to preserve consumer freedom is to limit
intervention to information provision (e.g., food package labelling). The capabilities approach
suggests that having to carefully analyse the labels of every food product to determine whether
it is unhealthy is in fact a burden. Regulation to reformulate food and/or restructure the market
to allow people of all levels of ability and wealth the opportunity to purchase healthy food
easily would provide a more meaningful freedom.87

How to think about health promotion ethics 13
“its” goods, that is, the goods of “the community” as a whole, as opposed
to “their” goods, that is the goods of the individuals who live in the
community.89 So, for example, if we say “West Haven is a walkable city” or
“France has high quality, affordable childcare services” or “Denmark’s
food supply contains almost no transfats,” we are talking about goods that
accrue to the entire community, to the body politic. Most importantly, they
are goods that individuals cannot achieve for themselves: they can only be
achieved through collective action. They are also better seen as opportunities
(in the capabilities sense) rather than interferences. And the ideal form of
health promotion discussed above is particularly well-oriented towards
such goods. Because these goods have special moral signicance, this
suggests that in evaluating health promotion activities we might ask: “Will
this benet everyone?” and “Are we focusing on outcomes that can only be
achieved through collective action?”
Victim blaming and stigmatisation
Individualism, and collective goods, can be connected by considering the
wrongs that health promotion might do to people and communities.xix In
short, health promotion practice seems likely to do wrong when it is method-
ologically individualistic, that is, when it understands social phenomena as
largely a product of individual agency, of the goals, beliefs and actions of
individuals, rather than focusing on collective goods and actions.44,88,91 This
entails an oversimplied model of disease and risks two main wrongs:
victim blaming and stigmatisation.xx
The potential for health promotion to “blame the victim” has been a
longstanding concern in health promotion ethics.92,93 This expresses an
important worry: is it just to consider individuals personally responsible for
their health? As with all moral issues, a view of individuals as personally
responsible tends to travel with a particular view of the good society, one
that imagines people as fully rational, informed and in control of their lives,
and thus values the protection of their negative freedom as a crucially
important moral good.
xix Unjustiably interfering in someone’s freedom, already considered, is also a wrong.
xx Note that victim blaming and stigmatisation are important wrongs, but not the only wrong
we should be concerned about: e.g., in an American setting, employers may buy-in health
promotion programs and then cut health insurance cover on the grounds that employees
should be healthier.16 Each strategy needs to be considered case by case. Also: victim blaming
and stigmatisation are widespread social trends. We are suggesting not that health promotion
practitioners are especially guilty of them, but that they are especially obligated to avoid them
because they are inconsistent with the goals and values of health promotion.

14 Public Health Reviews, Vol. 34, No 1
There are two key points to make here. The rst is to distinguish causal
from moral responsibility. We might, for example, prepare a meal for our
family and in so doing unwittingly give them food poisoning; in this case
we would be causally, but not morally, responsible.29 The second point to
make is that there is no clear line between private and public actions in
health: the strong evidence on social determinants shows that responsibility
for health is diffuse.29,62 We all engage in practices that contribute to our
health, but at best are only partially responsible for our health status.
Further, empirical evidence shows that people tend to allocate responsibility
to individuals to make sense of health problems, so we may be less likely
to recognise this when it occurs.xxi,16,94
Many health promotion strategies may risk allocating responsibility
unjustly. Workplace-based health promotion, for example, may give
employees tools to endure a health-undermining workplace rather than
attempting to change the institution.16 Social marketing campaigns
frequently address viewers as individuals, exhorting them to change their
behaviour and suggesting that this is easy despite the overwhelming
evidence to the contrary.64,95,96 Given that these campaigns are widely
thought to act on social norms, they arguably reproduce the tendency for
members of the general public to unjustly allocate responsibility for health
risks or diseases to individuals.
The second potential wrong is that negative messages about disabilities,
illnesses or risks will increase the stigma experienced by people who are
already living with those disabilities, illnesses or risks.64,97 Identication
and labelling of differences between people can be benign, but become
stigmatising when certain identied groups are stereotyped and perceived
as other—as “not like us” or deviant—leading to loss of status and
systematic discrimination against people living with conditions such as
mental illness or obesity.44,98
Health experts sometimes suggest that stigma is a useful tool for
population-level communications. This is consistent with simplistic health-
maximising utilitarianism: an impoverished view of the good society as
one that should deliver the maximum possible amount of health on average.
On this view, stigmatisation that “works” to improve health is morally
acceptable. This argument is clearly ethically problematic. It focuses on the
health dimension of wellbeing at the expense of other dimensions, such as
respect.60 It ignores evidence that stigma makes life more miserable and
xxi Note also that the empowerment discourse may imply that individuals should be able to take
charge of their health.92

How to think about health promotion ethics 15
stressful and so is likely to have direct health effects.98 It fails to recognise
that being stigmatised travels with disadvantage, that stigmas tend to
cluster, and that stigmatised conditions are only partly the responsibility of
the individuals who experience them, such that these individuals should not
be held responsible unless the other involved parties are also held
responsible.29,44,98 All of these problems make such stigmatisation, whether
deliberate or unintentional, unjust.
Health promotion practitioners do not always have control over the work
they do. They may be deeply personally committed to building respectful
relationships with communities over time, building community capabilities,
and ensuring sustainability, but be required to implement standardised and
potentially problematic interventions.43 Managerialism can encourage
“ethics avoidance”, with scientic and managerial rationality overwhelming
ethical concerns.29,99 David Buchanan, who developed one of few total
theories of health promotion ethics in 2000 (Note vi), reacts explicitly
against such rationality. He advocates responding to local situations rather
than applying standardised solutions, acknowledging the importance of
being trusted by communities and building solidarity, thinking of people not
as faceless aggregations of statistics, or as “targets” for punishment and
reward, but as citizens who are worthy of, and stand to benet from,
respectful engagement.47 This suggests the importance of accountability to
communities,80 and suggests two different sets of responsibilities in health
promotion. First, planners and policymakers should aim to create programs
and strategies that minimise the risk of harming or wronging citizens,
whether through stigmatising them, making them falsely personally
responsible, or in other ways. Second, individuals on the “front-line” of
health improvement, whether in ofcial health promotion roles or otherwise,
should deal respectfully with those whom they encounter and, where
practicable, critically analyse, challenge and resist policies that fall short.
How to distribute the benets of health promotion
Our nal ethical question is: how should the benets and burdens of health
promotion be distributed? Asking this entails a vision of the good society as
one that fairly distributes resources, opportunities or wellbeing. Powers and
Faden’s theory is useful here. They argue that those in society who are least
well off experience “densely woven systematic patterns of disadvantage,”60
that is, they experience many forms of disadvantage simultaneously. They
are likely to have less money, poorer housing, less work and lower status
work, poorer quality of education and so on, all at once. These interact and
compound, worsening disadvantage. So those least well-off would require

16 Public Health Reviews, Vol. 34, No 1
extraordinary good luck or heroic effort to attain even an average level of
wellbeing, usually through no fault of their own.60 For Powers and Faden,
this makes densely patterned disadvantage particularly unjust. Because they
see public institutions as especially responsible for increasing social justice,
they argue that public health and health promotion, as public institutions,
are particularly obliged to intervene in severe disadvantage.
By now it should be clear that we are broadly convinced by and
committed to the normative ideal of health promotion summarised earlier:
focused on the fairness of social arrangements, and on achieving the
conditions that underpin good health for everyone, in collaboration with
communities. For us this entails a reexive commitment to a vision of the
good society that emphasises social justice and collective goods, informed
not only by moral and political arguments about the nature of the good
society, but also by strong evidence on the social determinants of health,62
and knowledge of health promotion practice. Others will occupy different
positions: for example, a utilitarian who wants to maximise average health
without too much concern for its distribution or the potential ill-effects, or
a libertarian who is most concerned about negative freedom, or someone
focused on eudaimonia at the level of the individual (Note vi).
We emphasise a particular way of thinking about the distribution of
benets and burdens. People are not all equally autonomous. Those who
have fewer opportunities relative to their fellow citizens are not autonomous
in the same way as those who have more opportunities. Someone with an
excellent education, high social standing, a good job, a supportive social
network, and a warm, dry home in a friendly, safe neighbourhood is
autonomous in a more meaningful way than someone with none of these
things. Conceptualising freedom as opportunity, and understanding health
promotion as an institution obliged to increase the availability of those
opportunities, encourages us to redress this unfairness. Conversely, those
who would emphasise freedom as the right to be left alone would see this
as an intrusion rather than a justice. We are concerned that health promotion
strategies should avoid increasing the existing stigma and unjust allocation
of personal responsibility that multiply disadvantaged people already
experience.98 This is based in our earlier arguments that health should not
be pursued at the expense of other aspects of human wellbeing. But a
utilitarian author may be less concerned about these issues, and a libertarian
may welcome a conception of individuals as personally responsible. Like
solidarity theorists, we prefer collective actions that produce collective
goods, both for their ability to redress disadvantage and their aspirational
qualities. Some collective interventions—such as using national regulation
to reformulate food—will benet everyone. We think that if fairness is

How to think about health promotion ethics 17
important, collective interventions that occur in settings or communities—
such as improving urban design, transportation or the availability of fresh
food markets—should be distributed at least equally, if not preferentially,
to disadvantaged communities. However, those who think we have no
special responsibility to the less well-off may not agree.
Goldberg argues that while we should aim to improve everyone’s health,
we should aim to improve poor people’s health more, because they are
currently bearing most of the burden.44 A simplistic utilitarian position
would oppose this contention. Increase average health, the argument goes,
and the least well-off will also benet: remember Rose’s famous prevention
paradox.xxii,100 We make two points here. Rose’s colleagues have lately
emphasised his egalitarian commitments: that he argued for structural
interventions as benecial for everyone, including the least well-off.100 And
in practice, “population-level” interventions often focus on altering
behavioural and biological risk factors, rather than facilitating structural
and political change. Identifying and intervening in people with risk factors
(e.g., overweight) tends to benet the afuent, because they have the agency
required to engage and participate.101,102
We have, anecdotally, heard decision-makers justify such interventions
as “helping the people who want to be helped” and so “focusing where we
can be most effective.” But this is only morally acceptable via a particular
vision of a good society: one in which health is a product of individual
choices and fairness can be de-prioritised. In a recent International Union
for Health Promotion and Education ethics forum, practitioners worried that
they were rarely funded to engage in structural change or address identied
needs in poor communities, but instead were expected to offer interventions
that only already-advantaged people could benet from.70 For practitioners,
at least, the commitment to justice built into the normative ideal of health
promotion appears to remain a central concern. But despite the ideal, health
promotion practice is often dominated by individualistic interventions.44,88
Current movements in health promotion towards complexity and systems
thinking may help counter this trend;103 however visionary actions from
health promotion opinion leaders, changes within bureaucratic systems, and
modelling from the non-government sector may be required to achieve
long-term change.
xxii Rose observed that populations contain many people at low to moderate risk of developing
a disease, and few at high risk of developing that disease. The prevention paradox is that
greater population health improvement may be obtained via widespread small improvements
in those many at low risk, rather than via dramatic change in those few at high risk.

18 Public Health Reviews, Vol. 34, No 1
CONCLUSION
Future scholars of health promotion ethics should self-consciously work
between social and political philosophy on the one hand and applied,
empirically informed, ethics of practice on the other. It is important to be
able to map, and debate, competing normative visions of health promotion,
including but not limited to the normative ideal we have elaborated here.
We should ask how such normative ideals can be defended, but also how
norms change in different times and places. We need to attend to principles
(such as minimising harm) but also to the contexts that shape policies,
norms and practices.
Many unanswered questions with ethical implications remain for future
work. What is health promotion now? Does it still exist? If so, does it bear
any relation to the 1980s normative ideal? How might it be different from
or similar to other aspects of public health practice, and does this matter?
What should it be in future? How can we better understand collective goods
or benets, and how should we weigh potentially competing goods, such as
maximising average benet vs. fairer distribution of benet? When can
citizens be reasonably expected to stand in solidarity with others to improve
everyone’s health? How can we convince decision makers to attend to the
potential harms of interventions as well as the benets?
Although statements of principle and codes of practice have symbolic
importance, doing practical ethics requires engagement with underlying
arguments and concepts, and also with the details of everyday practice.
Simple prescriptions cannot sufce because every situation is different.
Examining ethical questions requires a conversation: a process of reasoning
back and forth between differing views of the good society and different
exercises of practical wisdom and experience. It requires openness among
all parties to be transformed in the exchange. We hope that the questions we
have posed in this review, and the range of answers we have presented, will
spark an enlivened conversation about both health promotion and health
promotion ethics, and so be of use to policy makers, practitioners and
everyone concerned with the health of communities.
About the Authors: Dr. Stacy M. Carter (PhD, MPH Hons) is a NHMRC Career
Development Fellow at the Centre for Values, Ethics and the Law in Medicine in the
School of Public Health at the University of Sydney. Her work focuses on the ethics
of public health (particularly health promotion, non-communicable disease pre-
vention and cancer screening), and on methodology for qualitative research and
empirical bioethics.
Dr. Alan Cribb (PhD) is Professor of Bioethics and Education and Co-Director of
the Centre for Public Policy Research at King’s College London. He has a particular
interest in the interface between philosophy, social sciences and professionalism.

How to think about health promotion ethics 19
Dr. John P. Allegrante (PhD) is Professor of Health Education and Deputy Provost
at Teachers College, and Adjunct Professor of Sociomedical Sciences at the
Mailman School of Public Health, Columbia University. His research focuses on
health behavior, health promotion, and health outcomes in chronic disease.
Acknowledgements: Stacy Carter is funded by a National Health and Medical
Research Council (NHMRC) Career Development Fellowship (1032963); research
for this paper was partially supported by NHMRC Project Grant 632679.
Conicts of Interest: None declared.
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