FAQ: Why don't layers display when added to the map service?
Why don't layers display when added to the map service?
If a layer does not appear on the map when it is add to a map service, click the layer and examine its scale range. If the scale range of the selected layer does not match the current scale, the layer is not visible. Click any scale that is within the scale range of the layer to view the newly added layer.
The initial view of a map is at the full extent; because of set scale ranges, many layers will not be visible until the map display is zoomed in.