Veterans Health Administration

Veterans Mental Health 

Council Guide

Veterans Mental Health Councils provide

a dynamic opportunity for VA staff and

Veteran consumers of VA mental health

services to learn from each other and

promote greater understanding of and

collaboration with each other to the

benefit of both.

Department of

Veterans Affairs

Table of Contents

Introduction...............................................................................................................i

Veterans Mental Health Council............................................................................1

Establishment of a Veterans Mental Health Council.....................................1-3

Who Participates on a Council?.........................................................................3-4

Challenges and Strategies....................................................................................4-6

How to Begin........................................................................................................6-9

Communication Pathways ................................................................................9-10

On-Going Training for Council

Members and Considerations Along the Way .............................................10-12

Documentation.................................................................................................12-13

Council Checklist .............................................................................................13-14

Introduction

“We envision a future when everyone with a mental illness will recover, a 

future when mental illnesses can be prevented or cured, a future when mental 

illnesses are detected early, and a future when everyone with a mental illness 

at any stage of life has access to effective treatment and supports: essentials 

for living, working, learning, and participating fully in the community.” This 

was the vision statement of the 2003 report by the President's New Freedom 

Commission on Mental Health, and it began the transformation of mental 

health service systems nationwide. The key elements in this transformation 

include providing recovery-oriented care and recognizing the role of the 

consumer and family in driving the system forward. Consumers of mental 

health services are to have real and meaningful choices and full participation 

in decisions about their health care as part of their recovery process. 

The Veteran's Health Administration (VHA) has embraced the principles of 

recovery transformation. The VHA Handbook on Uniform Mental Health 

Services in VA Medical Centers and Clinics (2008) was developed with 

recovery in mind. The Uniform Services Handbook outlines the guiding 

principles and the required components for all VHA mental health services. 

VHA mental health services must be recovery-oriented. The emphasis is on 

person-centered care and, whenever appropriate, family involvement.

The Uniform Services Handbook strongly encourages VA Medical Centers 

to promote a local Veterans council to facilitate input from stakeholders on 

the structure and delivery of mental health services. The Uniform Services 

Handbook designates these councils as "Consumer-Advocate Liaison 

Councils." However, for the purposes of this document, the councils are 

known as Veterans Mental Health Councils.

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Veterans Mental

Health Council

A Veterans Mental Health Council 

(VMHC) is a group of Veteran mental 

health consumers and their family 

members. It may also include, but is 

not restricted to, representatives from 

community mental health agencies such 

as the National Alliance on Mental 

Illness (NAMI), the Depression and 

Bipolar Support Alliance (DBSA), 

Veteran Service Organizations (VSOs), 

and local community employment and 

housing representatives. The medical center's Local Recovery Coordinator 

(LRC) or another mental health staff member is designated to serve as 

a liaison to the council. The liaison facilitates communication with the 

leadership of the facility’s mental health programs. The purposes of a 

council are to provide input regarding local mental health structures and 

operations and to share information with Veterans, family members, and 

community representatives about local VA mental health programs and 

initiatives. This guide will provide information on the development and 

operation of councils and note some important considerations.

The changing VA mental health system seeks to be responsive to the needs 

of Veterans and their families. Meaningful input from Veteran consumers 

ensures that they have a voice in determining the care they receive on their 

recovery journey. Councils also promote the understanding and use of VA 

mental health services by all Veterans and their families.

Establishment of a Veterans Mental

Health Council

Promotion of a Veteran-Run Council

Veterans Mental Health Councils are established and run by Veterans without 

management or control by VA and are, therefore, independent of VA. None 

of a council’s members should be VA employees, and VA is not involved in 

selecting the council's members, does not set the council's agenda, and does 

not otherwise dictate the council's activities.

Utilization of VA Support for a Council 

Although a council should be independent of VA, it must have a reliable 

line of communication with VA. The quality of a council's communication 

depends upon a strong liaison with the local VA medical center (VAMC) 

and/or VISN mental health professionals and other VA officials. Examples 

of an appropriate liaison at the facility level would be the Local Recovery 

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Coordinator (LRC), the Psychosocial Rehabilitation and Recovery Center 

(PRRC) Coordinator, or another recovery-oriented staff member.

Additional VA support for a council can be provided without jeopardizing a 

council's independence. It is not likely, in most cases, that a council would 

have sufficient resources to support its own operations. A council should 

be able to rely upon the local medical center for logistical support, such as 

arranging a meeting site and authorizing the use of VA office equipment to 

produce reports.

As stated above, council 

membership should not include 

VA employees. However, that 

does not preclude any VA 

employee from attending or 

participating in council meetings 

at the invitation of the council. 

The staff liaison to a council 

would probably be expected to 

attend all meetings. Council 

leaders may determine that a standing invitation to other VA professionals 

is an appropriate course of business. Likewise, the presentation of council 

reports and/or recommendations may involve face-to-face meetings between 

the council leadership and mental health and medical center leadership.

Examples of appropriate VA support for a council:

	 ⇒ VA staff may publicly announce the formation of a council by

displaying posters, talking with other staff to inform Veterans, and

emphasizing that Veterans will be starting a council on their own.

The staff can talk about what a council is, what it does, general roles and

responsibilities, the benefits of a council, and how it could interact with

VA. The staff can make recommendations to the council (for example,

suggesting that the council develop and maintain appropriate documents

such as bylaws and minutes or that the council form subcommittees), but

VA staff may not mandate any procedural or substantive requirements for

the council’s operations. In this way, the council is not established,

managed, or controlled by VA.

	 ⇒ A VA staff member can function as a liaison to the council but not be 

a member of the council. The liaison's role is to facilitate

communication between the council and mental health leadership. The

council is run by the Veterans, and the chair of the council must be a

Veteran consumer, family member of a consumer, or other non-VA

staff member.

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	 ⇒ The liaison can suggest appropriate VA staff or others who could be

a guest of the council to provide specific information. For example, if 

the medical center is setting up a PRRC, a good use of the council might

be to invite the PRRC staff to talk with council.

	 ⇒ The liaison also can help the council understand the VA system and help 

identify appropriate avenues to address an issue.

Who PARTICIPATES on A Council?

Members

The majority of members are 

Veterans with mental health 

diagnoses including persons of 

diverse age, race, gender, and 

period of military service. This 

may include Veterans from mental 

health inpatient, residential, and 

outpatient programs. Members 

may also include family members, 

members of local VSOs, 

community mental health agencies, organizations 

such as NAMI and DBSA, and local community 

employment and housing representatives. The 

diversity of members strengthens a council. 

Councils are responsible for selecting

their membership.

Staff Liaison

Each council will have a VAMC staff liaison to 

facilitate communication with mental health and 

medical center leadership. The liaison assists the council in understanding 

the VA system. This may include providing support, arranging meeting 

space, identifying speakers and assisting with training.

Other Participants

The success of a council will depend in large part on how well it collaborates 

with mental health and medical center leadership. A council will also want 

to ensure that the number of staff present at meetings is not so large that 

council members feel inhibited in discussing issues and problems. It might 

be helpful to have one or two mental health staff members regularly attend 

council meetings and invite additional staff members to attend only as 

particular topics or issues arise. Such participants may include medical center 

leadership, mental health leaders, the LRC, and other interested mental health 

staff. A council may wish to invite other medical center staff or community 

leaders as appropriate.

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Qualifications of a Council Member

The qualifications are similar to those 

required for any council or committee. 

These include: a strong commitment 

to the mission and goals of the council, 

an ability to focus on issues important 

to the organization as opposed to 

personal concerns, a commitment to full 

participation, a willingness to work with 

others and consider others’ views, and 

an ability to solve problems in a creative 

manner. It is important to have some members with specific skills such as 

familiarity with computer software, word processing, spreadsheets, policies 

and procedures, and bookkeeping.

Challenges and Strategies

Setting up a council is not easy, and those 

who do are likely to face several challenges. 

Traditionally, mental health systems were 

established with providers having power 

over their clients. However, Veteran 

input is crucial for transforming VA into 

a recovery-oriented system. Veteran 

involvement in the health care process can 

positively impact the quality of services. 

Veterans have valuable contributions to 

make, not just to their own treatment, but 

also to the overall operation of the system.

Six Barriers and Potential Solutions

In 1989, Valentine and Capponi1 published a report on "six barriers to 

effective consumer participation" on mental health boards and committees. 

They are summarized in the following paragraphs.

Incongruence Between Stated Values and Actual Practice

Consumers may be suspicious of the motives and sincerity of the providers 

helping to establish consumer councils, questioning whether providers truly 

want the system to be more responsive to consumers. Likewise, providers 

may be concerned that consumers do not have the best interests of the 

health care system as the core of their desire to form a consumer council. 

To make sure that the values of the organization match actual practice, 

values need to be honestly stated and discussed with consumer members

and staff.

1 Valentine, MB, & Capponi, P. (1989). Mental health consumer participation on boards and committees. 

Canada's Mental Health, 37 (2), 8-12.

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Tokenism

Tokenism refers to the number of consumer representatives on the consumer 

council and the level of responsibility assigned to them. Consumers want to 

know that their participation is meaningful, not just a token “nod” to the idea 

of consumer participation. Numerous authors in recent years have addressed 

the importance of having significant numbers of consumers in decisionmaking capacities and ensuring that they have the tools and the information 

they need to be effective. In addition, the council may want to work with the 

staff liaison to identify a "home base" for the council members to prepare for 

the meeting. Although space is tight in most medical centers, providing an 

identified office space where the officers of the council could, for example, 

meet either as a small group or with interested parties, make phone calls, 

and prepare and store documents might demonstrate the medical center 

administration's commitment to the council.

Lack of Responsiveness

When recruiting members, consumers with various perspectives need to be 

sought. It is important to seek out less experienced consumers to participate 

on boards and committees rather than relying solely on consumers who are 

frequently overwhelmed with numerous requests.

Role Strain

Role strain comes from unclear mandates, roles, and functions. People want 

to understand what is expected of them. In addition, consumers may be 

concerned about being in a dual role of both a council member and the 

recipient of services from the health care system. They may also fear that they 

are not capable of serving effectively because of their mental health problems. 

Sensitivity to these issues with consumer members is important. In addition, 

council members may have difficulty participating because of personal 

stressors. Council members may want to consider establishing an outreach 

committee to encourage those who have stopped coming to meetings to 

return. This can demonstrate that all council members are valued.

Poor Communication

Clear and timely communication is necessary 

for the council to run smoothly. Councils may 

benefit from identifying a way to communicate 

in a timely manner changes in date, time, 

or location of meetings. In addition, the 

jargon of medical and legal professionals can 

be confusing, and knowing how the system 

operates can be difficult. Council members 

may want to consider partnering with the staff 

liaison to learn more about terminology and 

about the VA system.

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Economic Factors.

Finances can be a barrier, since time and transportation can

be expensive. The council may benefit from taking into 

account driving distances when choosing a site for the 

meetings. A centrally located meeting site might be chosen, 

or meeting sites could be rotated. The council might want 

to make sure that accessible parking is available at the 

meeting site. The council may work with the staff liaison 

to identify appropriate space and to ensure that there is 

availability of and storage space for flip charts or other 

visual aids. There may be resources within the community, 

and contingency or post funds might be established to 

assist those with transportation problems. The council 

may wish to explore the possibility of car pooling, which 

could solve not only a transportation problem but may also 

promote cohesion among council members.

How To Begin

First Steps

The first step could be to have a 

conversation with a group of Veterans, 

family members and mental health staff. 

Getting the word out with posters, 

newsletters and community meetings 

will help identify Veteran members for 

this. Mental health staff may be able to 

suggest family members who would like 

to learn about councils. The members 

of the group may consider issuing a 

specific invitation for family members. 

Informational meetings and focus 

groups can be used to explain the idea 

of a council. The initial conversation 

will identify opportunities, potential 

challenges, and goals. It can also begin 

to engage mental health and medical center leadership through regular 

meetings that allow for an exchange of ideas. The Director of Consumer 

and Liaison Services in VA Central Office, Office of Mental Health Services, 

is available as a resource to support the development and functioning of 

these councils.

It may be helpful early on to contact existing councils at other sites. These 

groups can give support, ideas and materials – there is no need to “re-invent

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the wheel.” The Director of Consumer and Liaison Services can assist in 

arranging these contacts.

The New Council

Some of the first tasks of a new council are to decide when and where to 

meet and how meetings are to be conducted. These decisions may include 

how to set an agenda, how to facilitate meetings, and how to establish 

ground rules of the council. The council may benefit from developing a set 

of bylaws and creating expectations of communication and culture, such as 

mutual respect.

Mission

A mission statement is a brief statement of the purpose of the council. The 

intention of a mission statement is to keep members aware of the council's 

purpose and responsibilities.

Development of a mission statement can be an important team-building 

activity. The following is an example of a mission statement:

“The mission of the (...) VMHC is to establish a true partnership between the Veterans 

and their families, VA mental health professionals, community partners and Veteran service 

organizations in order to improve the quality of VA mental health services, to improve 

Veterans' understanding of those services, and to promote the best use of those services.”

Bylaws

One of the first tasks a newly formed council may wish to consider is the 

drafting of bylaws. See Bylaws section under Documentation for

more information.

Ground Rules: Expectations for a

Successful Council

Each council may have its own unique expectations, and yet some seem 

critical. Experience has shown that councils are most effective when the 

following elements are considered.

It is important for a council to have a recovery-oriented philosophy

including the values of:

	 •	 Respect

	 •	 Hope

	 •	 Dignity

	 •	 Responsibility

	 •	 Equality

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	 •	 Trust

	 •	 Empowerment

	 •	 Self-determination

Of all these values, respect may be most important. It is suggested that the 

expectations of a council be established early, and it is strongly encouraged 

that these be in writing, so that council members can refer back to them 

when in need.

Respectful communication with others is paramount. Cursing, foul 

language, sexist language, expressions reflecting discrimination, and 

harassment cannot be tolerated. Most individuals will agree with this in 

theory, yet respectful communication is often the first casualty when an 

individual is passionate about a subject or the conversation becomes heated. 

It is vital that individual council members and guests of the council be able 

to discuss openly and disagree respectfully with one another.

Some points to consider:

	 Disagree with the idea,

not the person.

	 Take responsibility for what you

say or feel without blaming others.

	 Really listen to others.

	 Think before speaking.

	 Be sensitive to others' viewpoints. 

There are many ways of looking at

a situation.

	 Do not interrupt.

	 No "side" conversations when

someone else is speaking.

	 No cell phone/BlackBerry use

during council meetings.

	 Respect privacy of others.

Handling Problems in Communication

Councils that have a written plan for handling conflicts or inappropriate 

behavior are usually best able to address those behaviors. Well written plans 

clearly explain the expectations of the group, especially for new councils 

and for new members. These plans outline a clear and fair process with a 

sequence of potential steps toward resolution and potential consequences.

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Team Work

A council functions as a team. Work done in the name of a council needs 

approval by the council ahead of time.

Responsibility

Council members and guests of the council have a responsibility to the 

council, to each other, to Veterans and to VA. Responsibility means being 

accountable, reliable, dependable and trust-worthy. This includes completing 

assigned tasks in a timely manner, being on time and educating oneself

when needed.

Diversity

Diversity on a council is not only 

welcomed, it is vital for the health and 

value of the council. Successful councils 

try to represent as many different kinds 

of Veterans as possible. This goes 

beyond race, minority status or ethnic 

background to include gender, military 

service era, age, mental health issue 

and inclusion of varied VA programs. 

This may mean that the council makes outreach efforts to engage certain 

populations of Veterans, such as women Veterans, Veterans returning from 

Operation Iraqi Freedom and Operation Enduring Freedom, and Veterans 

with serious mental illness. 

In summary, a well run and effective council is respectful of all members 

and guests. It operates in a professional and business-like manner and 

encourages diversity and open discussion of issues.

Communication Pathways

Guests

In order to be effective, a council will need 

information about the local facility, its 

departments, and especially its mental health 

programs. Meeting key staff within those 

departments and programs can be beneficial, 

and key staff may be invited to the council 

on an on-going or rotating basis. When 

councils are new to a facility, staff members 

may feel uncertain about why they are invited 

to a council meeting. The council and the 

council liaison often prepare first time guests 

ahead of time to ease anxiety and to provide 

a framework for discussions, questions, and 

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answers. The guests learn about the purpose of the council and why they 

were invited to attend. The council chair might want to explain the structure 

of the council and give the guest an idea of what to expect from the meeting 

and what kinds of questions might be asked. The council may wish to 

consider developing and sending questions to the first-time guest in advance 

of the meeting so the guest has time to prepare.

Liaison

The staff liaison to the council plays a large role in assisting the council with 

information. It will be helpful if the liaison knows about VA policies and 

procedures as well as information on VA Central Office initiatives, VISN 

projects, and local activities.

VA Mental Health Leaders

Mental health leadership involvement is vital for an effective and beneficial 

council. This essential link to mental health leadership cannot be overemphasized. Leadership is strongly encouraged to attend council meetings 

upon invitation to demonstrate strong support and yet in a manner that 

does not jeopardize the independence of the council. Communication can 

then flow directly to and from leadership and the council. In addition to 

oral communication, copies of any reports may be sent to the local medical 

center director, VISN mental health liaison, and the Director of Consumer 

and Liaison Services in the Office of Mental Health Services in VA

Central Office.

On-going Training for Council Members and 

Considerations Along the Way

Training provides an opportunity for members to grow and become more 

informed in their role. A council may partner with mental health leadership 

to develop appropriate training modules, and that may include topics such 

as advocacy skills, suicide prevention or cultural competency. A council may 

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also step back from time to time to look back to celebrate successes and to 

look ahead to plan for the challenges associated with this work.

Orientation and Training

Keeping VMHC members involved and interested can be a challenging but 

rewarding process. Members want to be welcomed and appreciated and 

know that the work they do is important and will make a difference.

New members may be introduced at the start of their first meeting to the 

other VMHC members, particularly to the chairperson and the staff liaison. 

It may also be helpful to assign a new member to a “buddy.” This can be an 

informal arrangement that provides new members with a personal contact 

for questions about the council, or it can be built in as a formal structure to 

the council, such as a Welcome Committee. This can be very helpful since 

there is so much information provided to new members. It may be helpful 

to periodically begin meetings with an explanation of the current goals and 

mission of the council. This will not only help to orient new members, but 

also help members who have been away for a while to catch up with the 

agenda and to get involved in the meeting’s discussion.

Orientation is essential for VMHC members. An orientation package 

prepared by the council can be provided to all new members and may include 

an overview of the organization including identification of leadership, a 

description of the medical center’s mental health services, and the role of the 

VMHC. New members could also be given the council’s bylaws, previous 

minutes and an overview of current projects. The council may wish to 

ensure members realize that if council documents, such as minutes, are 

circulated beyond the members, others will know they are on the council.

Recognizing Achievement 

Council members may be more committed when they feel their 

efforts matter and lead to success. It is often helpful to set 

achievable goals, particularly in the early stages of a council. As 

members feel a sense of accomplishment, it will renew their 

commitment to stay involved and active. Recognition can occur 

for individuals as well as for group contributions for a job well 

done. Additionally, recognition can occur for both large and small successes. 

Examples are:

“Tom, thank you for sharing your ideas about how to plan the cake sale. It helped me to 

see things a different way.”

“Special thanks go out to the Transportation Committee for getting everyone to the conference.”

It is important to promote the council’s successes to others at the medical 

center, including mental health staff, executive leadership, and other Veterans. 

There are many ways to spread the word about positive accomplishments. 



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This will reinforce the importance of the council and ensure that the council 

continues to have a voice within the organization. When other Veterans hear 

about the success, they will be more inclined to join a “winning team.”

Celebrate and have fun! 

There is no question that membership in a council will require work and 

commitment, and there is no reason that it cannot be fun as well. Members 

are more likely to stay involved when they enjoy what they are doing. 

Celebrating accomplishments, holidays, other landmarks, and even birthdays 

can be helpful. A council may wish to invite non-members and VA mental 

health staff to these celebrations to encourage future membership and 

partnership and to share the positive experiences of the council with others 

in the organization.

Documentation

Bylaws

One of the first tasks of a 

newly formed council is the 

drafting of bylaws. Bylaws 

can delineate a variety of 

important issues including but 

not restricted to the following: 

purpose of the council (mission, 

vision, goals, values, scope); 

processes for the nomination, 

appointment, and removal of 

members; establishment of 

specific membership positions 

and roles (e.g., number of 

members; officers); membership 

eligibility and qualifications 

(e.g., consumers of VA mental 

health services, family members, 

other stakeholders; ability 

to work collaboratively in a 

group); attendance expectations; procedures to be followed (rules of order), 

including mechanisms for circulating documents and maintaining an ongoing 

dialog with facility/VISN leadership; and frequency of meetings.

Agenda

An agenda for each council meeting is very helpful. Often, it is easiest 

to develop a standard template (format) that can be used consistently for 

each meeting regardless of the specific topic or meeting focus. Agendas 

typically indicate the time and place of the meeting and sections devoted 

to announcements, old business and new business. The old business 

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section helps to insure that previous issues are not lost and are followed up 

appropriately. It often works best if a specific individual or individuals are 

assigned to present or facilitate discussion on each agenda item.

Minutes

Minutes of each meeting may be recorded by a designated person. 

Although there is some flexibility in regard to how much detail is recorded, 

it is important that major issues are documented along with main points 

discussed. Any expected follow-up action is recorded as well, including the 

person(s) responsible and target date for completion or status report. In 

addition, minutes typically include a list of individuals in attendance and any 

announcements made during the meeting.

Annual Report

The Veterans Mental Health Council is strongly encouraged to prepare 

a yearly report that states the council's purpose and goals and highlights 

council achievements for the year. Clearly communicated recommendations 

from the council can be forwarded to mental health and medical center 

leadership, the VISN MH liaison, and the Director of Consumer and Liaison 

Services in the Office of Mental Health Services in VA Central Office.

Council Checklist

The following checklist provides a summary 

of milestones that are often accomplished 

when developing a council. Milestones are 

highlighted in bold type. Additional narrative is 

provided under each heading with more detailed 

suggestions and examples.

Creation of a Council

 Identify a VA staff liaison who is knowledgeable and supportive

of recovery oriented care. Possible candidates include the Local Recovery

Coordinator or other recovery-oriented mental health providers.

 Create a council planning group whose membership could include

the VA staff liaison, Veteran consumers of VA mental health services,

and others.

 Write a statement describing member responsibilities, duties,

expectations and terms of office. Expectations could include member

availability and commitment to attend meetings and to participate in

discussions. You may want to plan turnover to insure both continuity and

adding new ideas over time.

 Develop member selection criteria. It is strongly encouraged that a

majority of members be consumers of VHA mental health services. 

Additional candidates for membership include family members of

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consumers and other stakeholders such as local mental health or Veterans

organizations. Other qualities to consider might include things like good

listening skills and the ability to work well within a group.

 Develop a recruitment plan and recruit members. Who will be

contacted and by what means? Will you conduct interviews; and, if so,

what questions will be asked?

 Orient and train new members. What orientation and training materials

would be helpful to a new member of the council?

 Orient mental health staff. Orientation of mental health staff and

programs could be useful in obtaining support for the council and a great

beginning to build a collaborative relationship.

Implementation

 Write bylaws which typically include the purpose, mission, vision, goals,

values, and scope of the council in addition to many details that are

important to its on-going functioning. See Documentation section above

for other possible content suggestions.

 Write Do’s and Don'ts fact sheet for members. A fact sheet might

include guidance such as: do not use the council to address personal

grievances; do seek out a diversity of viewpoints; do help to establish a

true partnership between the council and VA.

 Identify resources that will be needed by the council such as meeting

space, furniture, supplies, and the means to make photocopies. Resources

also might include information about local mental health programs, special

initiatives, and future plans.

 Plan meetings. Meetings require planning, such as creating a meeting

schedule including time, place, and frequency. Developing and following

an agenda is a great organizational tool. A council may want to consider

alternative methods of holding meetings, such as by phone or at alternative

locations and various methods of communicating between formal

meetings. Meetings and the council in general may be more effective if

subcommittees and workgroups are established to work on council

business between meetings.

 Deliver documents including minutes from each meeting, an annual

report and articles in the medical center newsletter. Periodic recognition

of members is also very helpful in reminding individuals of the

importance of their contributions and their value to the council.

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Questions and Comments can be sent to:

Peggy M. Henderson, Psy.D.

Director, Consumer and Liaison Services

Psychosocial Rehabilitation and Recovery Services

Office of Mental Health, VA Central Office

Phone: (502) 287-4481

Fax: (502) 473-8802

Peggy.Henderson@va.gov

September 2009


Department of 

Veterans Affairs

(revised) September 2009

Veterans Mental Health

Council Guide

IB 10-84 

P96153