Most models of surface contact consider the surface roughness to be on one of the contacting surfaces only. The authors give a general theory of contact between two rough plane surfaces. They show that the important results of the previous models are unaffected: in particular, the load and the area of contact remain almost proportional, independently of the detailed mechanical and geometrical properties of the asperities. Further, a single-rough-surface model can always be found which will predict the same laws as a given two-rough-surface model, although the required model may be unrealistic. It does not seem possible to deduce the asperity shape or deformation mode from the load-compliance curve.