This paper discusses some of the tensions revealed in the development and implementation of recent area-based approaches to social policy in England. Such programmes are now a central feature of Government policy practice, although similar programmes have been developed in the past in the UK and other welfare capitalist countries. They reflect concerns to combat social exclusion and ‘join-up’ service provision. They are also evidence of a shift towards more agency based policy practice – from ‘top-down’ to ‘bottom-up’ planning. Thus participation of citizens is a key element in all programmes. Some of the problems of securing such participation are discussed, including in particular the tendency for expectations of participation to lead to pathological interpretations of the causes of (and solutions too) social exclusion.