One of the problems was that a number of council employees are members of the GMB, and this union was not involved in industrial action. Its members were advised by the GMB not to cross Unison and Unite picket lines - but at a lot of buildings, including the public libraries, there was no picket line in place. Even where there was, some GMB members walked into work. Also, some GMB members took advantage of the strike to do overtime to cover the work of their absent Unison and Unite colleagues. They were thus deliberately undermining the strike.
On the positive side, Royal Mail workers declined to cross a picket line to deliver mail to Municipal Buildings, and many members of the public who were passing by expressed their support.
One reason for the lack of action could be that trade unions have won no major victories against employers since the 70s. Trade unionists feel disempowered, and have either forgotten, or never had, the positive experience of the power of solidarity. Also, trade union organisers are bureacratic and remote. Many shop stewards in Liverpool complain of how dificult it is to contact any of the officials at the Unison branch office. They are often not available and you never get a return phone call. Since the ballot on industrial action was only narrowly in favour - 55 per cent of those who voted - the union organisers should have tried a lot harder to organise effective action, if it was going to succeed. They didn't. This is bound to make you wonder just how keen they really are to actually achieve a pay rise for their members. Unison and Unite, like most other trade unions, are still far too close to the Labour Party. They may be reluctant to upset the New Labour government by pushing too hard to get an adequate pay rise for public sector workers, when government policy is to have what they call "pay restraint". This would explain why spokepersons for the union have been so apologetic for taking industrial action, rather than promoting it as a positive way of asserting worker's rights.
Another reason for the lack of enthusiasm among the workforce could be that, compared to the 70s, workers are now much more in hock to capitalism. The promotion of easy credit means that almost everybody is in debt, and the promotion of house ownership means that most people pay out a high proportion of their wages on a mortgage; and if you lose your job you don't get your mortgage paid through social security benefits. In that situation, better a miserably underpaid job than no job at all.