A composition is provided to apply to the skin, hair, or external mucosa of a human or animal, and a method for using the composition. The composition includes for example a composition for application to skin, hair or external mucosa comprising: a) dispersed submicron particles of hydrophobic agent(s) having average particle size from 100 nm to 999 nm; b) an aqueous-solvent fluid; and c) rheological modifying agent(s); wherein the aqueous-solvent fluid is 10% to 95% wt. of one or more water miscible solvent(s), 4.99% to 89.99% wt. water, and 0.01% to 10% wt. of the rheological modifying agent(s); and wherein the hydrophobic agents comprise 0.01 to 70% wt. of the skin, hair or mucosal composition; and wherein the composition is substantially surfactant-free.