Democratic theorists commonly distinguish between direct democracy and representative democracy. In a direct democracy, citizens rule themselves, while in a representative democracy they elect representatives to rule on their behalf. Today's democracies are all representative in structure – a form dictated by scale and complexity – with some direct elements such as initiatives and referenda, as well as some forms of citizen engagement. The concept of participatory democracy usually refers to these latter two elements: direct decision-making as well as citizen involvement in decision-making within representative structures. If, however, we consider these two forms of participation from the perspective of representation, the first involves citizen participation in government or other formalized decision-making, on the assumption that citizens represent themselves within these processes. The second involves citizens themselves serving in representative capacities: lay citizens represent other citizens. I shall refer to these roles as citizen representatives – a form of representation that is increasingly common in practice, but almost untheorized in democratic theory.

To be sure, the idea that citizens are best represented by other lay citizens serving as representatives is an old democratic ideal. It justified early notions that elected representatives should be salaried so as to enable ordinary citizens – not just the rich – to serve in public office, as well as the more recent idea that term limits will prevent elected representatives from becoming professional political elites.