A workers' council or labor council is a form of political and economic organization in which a workplace or municipality is governed by a council made up of workers or their elected delegates. The workers within each council decide on what their agenda is and what their needs are. The council communist Pannekoek describes shop-committees and sectional assemblies as the basis for workers' management of the industrial system. A variation is a soldiers' council, where soldiers direct a mutiny. Workers and soldiers have also operated councils in conjunction (like the 1918 German Arbeiter- und Soldatenrat). Workers' councils may in turn elect delegates to central committees, such as the Congress of Soviets.