Nanoparticles formed by 
emulsion of one or more core polymers, one or more surface altering materials, and one or more low molecular weight emulsifiers have been developed. The particles are made by dissolving the one or more core polymers in an 
organic solvent, adding the solution of the one or more core polymers to an 
aqueous solution or suspension of the emulsifier to form an 
emulsion, and then adding the 
emulsion to a second solution or suspension of the emulsifier to effect formation of the nanoparticles. In the preferred embodiment, the molecular weight of the emulsifiers is less than 1500, 1300, 1200, 1000, 800, 600, or 500 amu. Preferred emulsifiers include 
cholic acid sodium salt, dioctyl sulfosuccinate 
sodium, hexadecyltrimethyl 
ammonium bromide, 
saponin, TWEEN® 20, TWEEN® 80, and 
sugar esters. The surface altering materials are present in an amount effective to make the 
surface charge of the particles neutral or essentially neutral when the one or more emulsifiers are charged. The emulsifiers have an emulsification capacity of at least about 50%, preferably at least 55, 60, 65, 70, 75, 80, 85, 90, or 95%.