Filing an Ankle (Limitation of Motion) Claim: The ITF → 526EZ → DBQ Sequence

The short version

Four steps, in this order. The first three protect your money and your evidence; the fourth is VA's move, not yours:

1. File an Intent to File (VA Form 21-0966) — locks in your effective date today, even though it isn't a claim yet.
2. Consider a private DBQ — if your own physician completes one, it gathers the medical evidence while your Intent to File clock is running.
3. File your claim (VA Form 21-526EZ) — within one year of step 1, with whatever evidence you have attached.
4. Attend the C&P exam if VA schedules one — this happens after you file, not before.

Do it out of order — especially skipping step 1 — and you can lose months or years of back pay for no reason other than paperwork sequencing. This part of the process is identical no matter which condition you're filing for.

Step 1: Intent to File (VA Form 21-0966)

An Intent to File is not a claim. It requires no medical evidence, no condition details, no diagnosis — just a statement that you intend to file. What it does is lock in your effective date: the date VA received your Intent to File becomes the date VA uses to calculate retroactive pay if your claim is later approved.

That matters because building a strong ankle claim — getting a DBQ completed, gathering treatment records, writing a lay statement about pain and functional loss — takes time. Without an Intent to File on record, your effective date is whatever date your completed claim eventually arrives, not the date you started working on it. File the Intent to File first, then take the time you need to do the claim right.

How to submit it (pick one):

• Online, fastest: Start VA Form 21-526EZ at VA.gov and save it — VA.gov automatically creates an Intent to File for disability compensation the moment you save a started application. You don't need to file 21-0966 separately if you do this.
• By phone: Call VA's National Call Center, 1-800-827-1000 (TTY: 711), Monday–Friday, 8 a.m.–9 p.m. ET, and ask them to note your intent to file. Get a reference number.
• By mail: Complete VA Form 21-0966 and mail it. Use certified mail with return receipt — VA's effective date is the date VA receives the form, not the date you mailed it, so you want proof of delivery.

The clock: once VA receives your Intent to File, you have exactly one year to submit your completed claim (VA Form 21-526EZ). Miss that window and the Intent to File expires — no penalty beyond losing the earlier effective date, but you'd have to file a new Intent to File and start the year over, losing whatever back pay the original date would have covered.

Step 2: Consider getting a private DBQ (while the clock is running)

There are two ways an Ankle Conditions DBQ gets completed, and only one of them is available to you before you file.

Your own physician can complete one now. This is what the Intent to File year is useful for. A privately completed DBQ goes in with your claim as evidence, and in some cases means VA doesn't need to schedule its own exam for that condition at all. (See the companion Ankle DBQ explainer for what the form measures and why it drives your rating.)

A VA examiner completes one only after you file. VA orders a Compensation & Pension exam as part of developing a claim it has already received — you cannot request one in advance, and there is nothing to attend during your Intent to File year. That's step 4.

So the decision during this window is whether to pursue a private DBQ, not which kind of exam to schedule. You are not required to get one. Filing with your treatment records and a lay statement is perfectly valid, and VA will develop the claim and examine you if it needs to. But a private DBQ is the single most useful piece of evidence you can control the timing and completeness of, which is why it's worth considering while the clock is running.

Something worth knowing before that appointment. The ankle form is built to run both ankles side by side — every range-of-motion question appears twice, once for the right and once for the left. If only one ankle is the problem, the other one is not a throwaway column: the form directs that if the unclaimed joint is undamaged, its range of motion must be measured too, because the comparison is part of what makes the exam adequate. A physician who fills in one side and leaves the other blank has produced a weaker document than the form asks for.

Step 3: File the claim (VA Form 21-526EZ)

This is the actual application — Application for Disability Compensation and Related Compensation Benefits. File it within your one-year Intent to File window, with whatever evidence you have attached: a privately completed DBQ if you obtained one in step 2, plus treatment records and a lay statement on VA Form 21-10210 describing pain, instability, or functional loss. If you don't have a DBQ yet, file anyway — the claim is what causes VA to schedule the exam that produces one.

Filing methods parallel the Intent to File: online through VA.gov (fastest, and lets you upload evidence directly), by mail, or in person/by mail with help from an accredited VSO or claims agent.

Step 4: The C&P exam, if VA schedules one

After your claim is filed, VA reviews what it has and decides whether it needs its own examination. If it does, you'll be scheduled for a Compensation & Pension exam — and that exam produces a DBQ completed by a VA or contracted examiner.

This is not optional, and how it goes matters a great deal. Missing it without rescheduling can cost you the claim.

Submitting a private DBQ does not guarantee VA skips its own exam, but a complete, well-documented one makes it less likely to be necessary.

Why the sequence matters for an ankle claim specifically

Here is the thing that makes an ankle claim different from a knee or a shoulder claim, and it is worth understanding before you file rather than after.

For most joints, the rating criteria use words — "moderate," "marked," "severe" — and leave it to the examiner to decide which word fits. The ankle is not like that anymore. The criteria for limitation of ankle motion now define those words in degrees. "Moderate" means less than 15 degrees of dorsiflexion or less than 30 degrees of plantar flexion. "Marked" means less than 5 degrees of dorsiflexion or less than 10 degrees of plantar flexion. The form even prints the normal endpoints — 20 degrees and 45 degrees — right next to the blanks where the examiner writes your numbers.

That changes what you are working toward. On a knee claim, the measurements matter but an adjective still stands between them and your rating. On an ankle claim, the measurements more or less are the rating, which means an exam that measures carefully, on a bad day as well as a good one, and that records what happens after you have been on your feet, is worth more here than almost anywhere else in the schedule.

It also means you can check the work afterward. That is unusual, and it is the subject of the next guide.

What's next

Once you've got your Intent to File on record, move to the Ankle DBQ explainer — what the form measures, how those measurements turn into a percentage, and how to tell whether your exam actually captured what it needed to.