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Can ArcWeb Service layers be visible at all scales?
When data is uploaded, the layers valid scale range is based on the number and complexity of the features. To make a layer visible at a larger extent (further zoomed out), use software, such as ArcGIS, to generalize the data. This not only simplifies the data but also makes the data less accurate so it is not as effective at smaller scales or further zoomed in.
In this case, scale ranges are very beneficial. Create two layers from the data and generalize one of them. Set the scale range for the generalized layer to show when zoomed out, and set the scale range for the detailed layer to show when zoomed in.