A Citizen is any character living in any city, hold, or province that is not associated with any guilds in a major way. The player may also be a citizen in a city or hold, so long as that player has met the requirements do so.
Citizenship in a certain region can usually be acquired by completing a quest or series of quests, followed by purchasing a home. Citizens are different in every city and hold. Many citizens will be able to become a follower to the Dragonborn, but only if their side quest is completed. They will be hostile to the Dragonborn if they have previously stolen from, or assaulted the citizen.
- A guard is likely to call all residents or visitors to a region "citizen," regardless of whether or not they are actually living in the aforementioned area.