Agencies often bring enforcement actions and propose and accept settlements that have significant repercussions for the public and those harmed by the alleged misconduct. However, few meaningful opportunities exist for the public, or for victims, to participate in the decisionmaking process, and no external constraints exist to ensure their interests are adequately considered. Focusing on the Federal Trade Commission and its settlement procedures, this Note asks whether more is needed to preserve administrative legitimacy. To do so, it situates rights of participation within the two dominant schools of thought about the administrative state: the arbitrariness model and the accountability model. It finds that these theories support more expansive, but distinct, participatory rights for the general public and for victims. Criminal law, and the victim participation movement within it, provides guidance for the path forward, and this Note concludes that Congress and agencies should act together to perfect participation rights in agency enforcement actions.