This article addresses the expansion of urban public services in major Nordic cities, from 1850 to 1920. We argue that changes in political discourse were the driving force that prompted politicians to act on behalf of the urban public, significantly before the rise of the universal welfare state. The discursive changes are explored through three analytic concepts: publicness, urban citizenship and the welfare city. We start by presenting a short overview of the development of urban public services. Then we demonstrate how these concepts may be used in conjunction to explain the historical changes. Finally, the material effects are discussed in three case-studies, addressing freshwater pipes, public transport and municipal health care, respectively.