Compositions for effectively delivering a water-soluble active material to a surface comprise: (a) from about 1% to about 30%, by weight of the composition, of a dialkyl quaternary ammonium compound having the formula: wherein R1 and R2 are independently C12 to C20 saturated alkyl chains; Y is wherein R4 is ethyl or isopropyl; R3 and R5 are independently methyl, ethyl, hydroxyethyl, or hydroxypropyl; m is 1, 2, or 3; n is 1 or 2; p is 0 or 1; and X− is a suitable anion; (b) from about 0.01% to about 10%, by weight of the composition, of water-soluble active material having a ClogP of less than about 2.0; and (c) at least about 60%, by weight of the composition, of water; wherein the compositions contain vesicles having a vesicle permeability index of less than about 1.3. Processes to make the compositions comprise the steps of dispersing the dialkyl quaternary ammonium compound and the water-soluble active material in an aqueous solution to form vesicles having a vesicle permeability index of less than about 1.3.