In seeking to answer the question ‘who should be included in fisheries co-management?’, a constructive critique of the existing co-management literature is provided by filling the gaps of Habermas’s deliberative theory of democracy with Dewey’s pragmatism. Three conditions for ensuring democratic co-management are extrapolated from the theories: actors’ authority over decision making (empowerment), actors’ diversity (membership), and the right to self-nomination (procedures for external inclusion). The theoretical insights developed are supported with two examples of co-management institutions for inshore fisheries in the UK: Scottish Inshore Fisheries Groups (IFGs) and English Inshore Fisheries Conservation Authorities (IFCAs).