I agree that incentive pay would fix the issue for some folks (like with those whose personal desires align with the assignment, such as having rug rats).
Using myself as a data point, however, I can tell you that right now I make right around a $100K/yr, and there are contractors that the AF pays ~$180K/yr - to do a similar job at Holloman. If that extra $80K (~10x the bonus amount you suggest) was offered to me as "Holloman incentive", it still would not be enough for me to move there. So I get that I'm a data point of one, but I'm telling you that the AF could double the money, and it wouldn't affect my calculus. IMO, to a great, MANY people, it's all about location, location, location, and with the way BAH, and COLA is designed, no one at any base should be hurting financially, so it's not like someone would really need that extra money. Just my 2 cents.
I think the AF does have to get creative when it comes to solving their problems, re: your X% of 365s suggestion. On that note, specifically, however, I think 179s/365s need to be drastically reduced, and beyond that, the AF needs to keep a long-term (i.e. career-long, 20+ year) list of those who have done such tours - and ensure everyone who hasn't done one, stays closer to the top than ANYONE who hasn't - including HPOs. A lack of transparency and fairness when it comes to 179s/365s is a major factor I think leads people to bail.
On the career benefits side, I think there could be stuff done in that regard. Something like every 3 years you spend at Holloman (sorry to keep piling on), nets you 4 years of service (YOS) - meaning you get pay raises earlier, get more time subtracted off your commitments/ADSCs, AND get to retire early. Costly? You bet - but such places already are costly in terms of attrition. Soooooooo, costly is a given at this point. Two tours at Holloman? Cool, you get sanctuary at 16 YOS, and get to retire at 18 - with a 20 year retirement.
Yeah, I like it. Maybe give certain assignments/bases "point values." Lock up a Can-Kun tour, get 100 points; rock a non-vol AFPAK hands, clear 500; soak up Spang/Aviano, pay -200. Next assignment drop, whoever has the most points, gets first dibs. This flies directly in the face of how the AF stacks the deck, but it would solve LOTS of problems - I can almost guarantee it. Every point you get to the end of your career with, the AF pays out 1000-to-1.