Jim Peckey was a young Navy petty officer stationed in Bahrain when the 9/11 attacks happened. As the nation went on a war footing, he suddenly shifted from administrative and IT duties to lugging water and equipment 12 hours a day, seven days a week — work that left him with chronic neck and back pain. He retired in 2002 but he put off applying for benefits because, like millions of veterans, he felt overwhelmed by the paperwork required.