This article explores the nature of participatory practices in policy-making in basic education and their impact on the directions and outcomes of policy. Drawing on theoretical developments in policy studies, the focus is on non-formal education as a policy challenge for EFA. Data are presented from a recent field study undertaken in Uganda of the process to establish a policy framework for basic education for disadvantaged children. A multi-dimensional frame is used for the analysis of the practice of policy development. It is argued that NFE, because of its amorphous and marginal nature, is an important arena for contesting the orthodoxy of educational thinking, policies and practices. Yet the full engagement by all stakeholders by itself cannot guarantee a democratic outcome, as the nature of policy processes may allow for counter-actions that preserve the existing education hierarchy.