What do you think should be done about a service member that does not promote?

I see that you are a Paralegal SPC, which has limited promotion potential pretty much everywhere.
BDE and higher typically will have a spot, maybe two for a 27D NCO. It is not a good MOS for career progression.
I think that for your career to progress, you will need to reclass at some point.
Now for that bonus, keep in mind that just because the Army CAN take away your bonus, doesn't mean they WILL. Your 27D MOS doesn't go away if you reclass, it just becomes a SMOS. It takes a deliberate pay action on the part of the commander to collect that money back.
If you reclass within your unit and pick up a promotion in that MOS, talk to your commander and see if he/she is willing to support you for career progression. If the answer is no, you need to look for another unit anyway. If the answer is yes, problem solved.

I was in the same position after I re-classed. I return to my National Guard post and the E-5 slots were gone. The promise of holding one was worthless. If there is another job you wanted in the military now is your chance to get, however chance are it won't be available at your current duty station. You may want to see if there are any duty stations within a reasonable distance to see what opportunities the offer. Most if not all will pay travel pay and if necessary put you up in a hotel.

Some people are happy at their position, and are also needed there. I believe promotion should be considered by performance, not by an unwillingness to move on.