This article explores a number of the problems associated with the use of the concept of "need" in social welfare provisions in general and adult education in particular. A number of general patterns in the use of the need concept are indicated on the basis of a review of the adult education literature. A distinction is made between usages in the areas of policy-making, the practice of adult education, and research. The focus next is on the use of the notion of need in arguments for decentralization of social welfare provision and adult education in the Netherlands. The policy context is central to this exploration of need. The use of the need concept in arriving at assessments of educational needs of a local population is then examined. This discussion is placed firmly in the context of needs research and the difficulties involved in arriving at objective measures of educational need. A critique of needs assessment is related to the broader issues emerging from experience with democratic welfare planning at the local level. Finally, a number of observations are made about approaches to the need concept in social research. (YLB)