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It HAS to be setuid root to work, so fix that first. Second, I'd suggest checking your apache logs after starting to see if it mentions the line I mentioned before (the quoted from httpd.apache.org...

Yes, but is your suexec binary setuid? chmod +s suexec if not. :)

http://httpd.apache.org/docs/suexec.html:
Documentation exists for a reason, ya know. ;)

EDIT: Btw, my bad about my OP, I looked at the apache2 stuff, your config line is good for apache 1.3....