The Workforce Investment Act (WIA) of 1998 mandates the creation of youth councils to bring together the major resource and delivery systems that have youth as a major "customer." These systems include the following sectors: education; public housing; Temporary Assistance for Needy Families agencies; WIA partners; the justice system; and the private sector. According to WIA, the primary function of youth councils is to advise local workforce investment boards (WIBs) on WIA-related youth issues. Local WIBs can also assume the roles of youth policymaker and system builder. Planning intelligently for a comprehensive system for at-risk youth requires having the following key pieces of information: numbers and characteristics of local youth; existing local programs and services for youth; the effectiveness of existing programs; gaps in services; ways of filling identified gaps; and employers' needs and expectations. The early experiences of the youth councils in the following cities provide guidance on establishing successful youth councils: Camden, New Jersey; Brockton, Massachusetts; and Philadelphia, Pennsylvania. (The following items are appended: information about the Levitan Center; four youth planning tools and a guide to their use; and a list of members of the Levitan Youth Policy Network. An annotated bibliography of 13 Levitan Center publications concludes the document.) (MN)