A PEB has considerable latitude and discretion in determining what conditions render a Service member fit or unfit. The nature of the medical condition is one factor, but the PEB ultimately must determine the extent to which, if at all, the condition prevents a Service member from being able to reasonably perform their military duties. A Service member’s permanent profile and the profile’s functional limitations are often dispositive, although a commander’s functional assessment, any restrictions on ability to deploy not subject to waiver, physical fitness test results, or efficiency reports are factors a PEB may consider as well.
The PEB’s discretion is not unbounded, and the PEB may not combine conditions that are separately unfitting or that contribute to a Service member’s unfitness to avoid separately rating those conditions. This is an erroneous practice that each military department PEB often follows to the prejudice of Service members. Contrary to that practice, statutory authority requires that in determining the disability rating of a Soldier, a PEB is required to take into account all medical conditions, whether individually or collectively, that render the Soldier unfit. 10 U.S.C. § 1216a(b).
This statutory requirement to consider all medical conditions is implemented by the Department of Defense in its Disability Evaluation System Instruction, DoDI 1332.18, ¶ 6.4.d. (Nov. 10, 2022) (formerly at Appx. 2 to Encl. 3, ¶ 4.d. in prior version of DODI 1332.18), which provides in pertinent part:
"d. Combined Effect.
(1) A Service member may be determined unfit as a result of the combined effect of two or more conditions even though each of them, standing alone, would not cause the Service member to be referred into the DES [Disability Evaluation System] or be found unfit because of disability.
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(3) Combined effect includes the pairing of a singularly unfitting condition with a condition that standing alone would not be unfitting."
The Army, for example, similarly describes this combined effect provision in Army Regulation 635-40, ¶¶ 5-4.g. and 5-5. Paragraph 5-4.g., provides:
Overall or combined effect. A Soldier may be determined unfit as a result of the overall effect of two or more impairments even though each of them, standing alone, would not cause the Soldier to be found unfit because of physical disability. Further, unfitness due to overall or combined effect may include one or more conditions determined to be unfitting in combination with an independently unfitting condition. Paragraph 5-5 provides: “The DES [Disability Evaluation System] compensates disabilities when they cause or contribute to career termination.”
It is well-settled that these statutory and regulatory provisions require that a PEB assign a separate disability rating to any medical condition that causes or contributes to the Soldier’s unfitness for duty even if another condition alone suffices to render a Soldier unfit. See Sissel v. Wormuth, 77 F.4th 941, 948-949 (D.C. Cir. 2023); Fuentes v. United States, 157 Fed. Cl. 433, 450-451 (2021); McCord v. United States, 131 Fed. Cl. 333, 347-348 (2017).
Based on the D.C. Circuit’s decision in Sissel, the Navy recently settled a class action lawsuit brought in the U.S. District Court for the District of Columbia by the National Veterans Legal Services Program challenging the Navy PEB’s practice of combining separately unfitting conditions or conditions contributing to unfitness and then limiting ratings to the combined conditions thereby reducing the Service member’s disability rating. See Springs v. Del Toro, No. 1:20-cv-03244 (RDM) (D.D.C. Mar. 23, 2024) (Joint Status Report) (copy attached).