I suspect that at least a small portion of this centers on what many "flattened" civilian organizations are discovering....what do you do with people when you promote them?
With "up or out" chugging along, people in the military get promoted. And then you have to find something for them to do (or at least a chair to sit in)...and that breeds higher headquarters.
Sorry for the simplistic analysis/comments, but I'm on the fly here and this just occurred to me. I've worked in "flattened" civilian organizations, and morale tends to suck because there's no place to go within the organization. If the military flattens, then they have to find places to put all those O4s, O5s, and so on. Staffs tend to make good hiding places.
Just a random thought. YMMV, as always.
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