Culture is often promoted as crucial in efforts to achieve economic growth and social cohesion. In recent debates, greater attention has been directed at the importance of culture in creating democratic and just cities. Drawing on theories concerning participation, we study the processes of citizen participation in the creation of culture in relation to the European Capital of Culture in Umea in Northern Sweden. The city has been praised for its focus on participation and the co-creation' of culture. We scrutinize the idea of co-creation, how it is filled with meaning by different actors, the way it is operationalized by city officials and cultural actors/practitioners and the possibilities for public participation and the power relationships at play in the city. We conclude that culture tends to be depoliticized and turned into an arena available for all on supposedly equal terms and ignores the very unequal terms on which different actors participate. It ignores how power relations affect and construct who gets to speak and be heard; that there are conflicting meanings of culture and co-creation and how power influences whose definition of culture is accepted.