I believe that it is an issue of "command emphasis." Now that does not mean "Commander" emphasis, it means the unit command group. If counseling is not emphasized and pushed from the top down, there is means to hold anyone accountable on the bottom for not doing it.
I am in a unit now where I do not have any junior Soldiers. I do however have a SFC and a SSG who work for me. You better believe that I counsel both of those NCOs. It is as much for their professional development as it is a tool for me to use when it is time for their evaluations to be done. It is much easier to cut and paste from quarterly counselings into an evaluation than it is to dream stuff up on the spot. And in doing that, there are so surprises to anyone when the evaluation is complete and ready for signatures.
Not sure if I have an answer for you SSG Purham on a solution. I will say this though, I rememeber back in the day when at the end of every month, there was dedicated time on teh training calendar for counselings. The 1SG would inspect counseling packets prior to anyone getting released for either Payday Activities or a long weekend, etc. That was command emphasis from the top down. Some units still conduct business this way. In my experience tough, this is not the norm.
I think additionally, we answer to an even higher authority, one that may not be focused on the individual, but more how an individual appears in the media and today's focus. We receive tasking for training after training, PII, TARP, Thumb drive awareness, etc. etc... Most of them in response to some sort of incident or situation which has made its way to the media... The more time we spend on a reactive environment the less time we have to personally mentor and counsel.