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Which Part Of "Volunteer" Don't You Understand?

WHICH PART OF "VOLUNTEER" DON'T YOU UNDERSTAND?....Ryan Crocker gets results! At least, he does after his cables get published in the Washington Post:
Secretary of State Condoleezza Rice ordered this week that U.S. diplomatic positions in Iraq must be filled before any other State Department openings in Washington or overseas are made available, raising the possibility that soon the agency will be forced to order its employees to serve in Iraq.

....Rice's message was sent more than two weeks after Ryan C. Crocker, the U.S. ambassador to Iraq, sent her a cable with an urgent plea for more and better staffers.
I don't get it. These guys believe in the free market. Why not just keep raising the salaries for postings in Baghdad until they get enough volunteers? I doubt they'd have to go much above a million bucks a year.