In this theoretical article, we respond to a common education policy discourse that represents community participation in educational policy-making as an essentially rational solution to policy problems and as inherently progressive and democratic. We propose that conceptualising participatory politics as 'publics' challenges this discourse and provides new openings for understanding community participation in education policy reform as modes of worldmaking. Historicising the participative turn within the key decades of the 1970s and 1980s, we argue that mobilisations of participatory politics in education reform are complicated by the existence of participatory reactionary or conservative politics and by participatory politics that are either fleeting and unsuccessful, or exceed or refuse the sovereignty of the liberal democratic state. We propose that working with the theories of the publics can enable a richer understanding of the history of neoliberal education policy reform and of present and future aspirations for participatory education policy practices.