Indicators of citizen participation are drawn from a pilot study of participatory evaluation by Learning Teams at 10 rural sites of the Empowerment Zones and Enterprise Communities Program. Separating indicators of participation from project impacts is useful to gauge the level and quality of participation in the ongoing development process (process indicators), the impact of participation on self-development and community capacity (developmental indicators), and the impact of participation on policy or change (instrumental indicators). Participation indicators developed through a participatory process can help agencies and organizations assess and strengthen participation and sustain it beyond the initial planning stages of development.