This article considers what is meant by ‘citizen participation’, especially the different meanings that the term has for the different actors involved. The discussion is illustrated by the story of a land invasion in Lima in 1971 and the compromise negotiated between the invaders and the government which led to the formation of a new settlement, Villa El Salvador. The article outlines the changing view of participation within government between 1971 to 1980 and how this affected the development of Villa El Salvador.
