Howard County Executive James N. Robey (D) may be the boss, but you wouldn't know it by looking at a list of county employees' salaries.

The recreation and parks director makes more than he does. So do the county solicitor and the director of citizen services. The chief of police, who holds the job Robey used to have, makes $15,000 a year more than his boss. There's even a police major who should pick up the lunch tab when he dines with the executive.

There are 16 county employees whose pay tops Robey's annual salary of $98,500.

Under a proposal the County Council is expected to consider on Monday, the executive's annual salary could jump to $125,000, starting with the next county executive term, in December. Montgomery County Executive Douglas M. Duncan (D) makes $124,302, Prince George's County Executive Wayne K. Curry (D) $105,000 and Anne Arundel County Executive Janet S. Owens (D) $102,000. All three counties expect to increase their executives' salaries in the near future as well.

It is not unusual for county employees anywhere, particularly department heads, to make more than the executive. Even Gov. Parris N. Glendening (D), who makes $120,000 a year, doesn't earn as much as his chief of staff, who makes $155,000, or as much as the lieutenant governor's chief of staff, who is paid $125,500.

The reason is simple: politics. Elected officials often shy away from backing salary increases for themselves or for other elected officials because the raises often don't sit well with voters, said Michael Sanderson, the legislative director for the Maryland Association of Counties.

"There is a general reluctance among policymakers to establish what might be perceived as high salaries for people holding elected positions," Sanderson said. "Because of the political process, you have an unusual situation where people at the top of the organizational chart may not have the compensation you would expect."

That political process is evident in Howard. Both Republicans on the County Council, Allan H. Kittleman (West County) and Christopher J. Merdon (Northeast County), are publicly opposing the proposed $1,200 pay raise for council members, who now make $33,800.

"With an expected $18 million shortfall in the county's budget, this is not the right time for the council to be giving itself a raise," Merdon said in a statement.

The two council members are not, however, objecting to the pay increase for the county executive, saying the job needs to pay well in order to attract good candidates and stay competitive with the private sector.

Democrats support the proposed county executive pay raise as well.

"I intend to vote for it," said council member Guy Guzzone (D-Southeast County). "I think everyone does. The position has been underpaid for years, and he shouldn't be making considerably less than so many other county officials."

Is it difficult to work for someone making less than you?

"He's the boss," said James M. Irvin, director of the Department of Public Works, who makes $130,062, which is $31,562 more than Robey makes.

"Salary doesn't have anything to do with it. It's really a nonissue."

That's easy to say if you're the one making more. Robey, who is, after all, the boss, said he thinks the executive's salary should be closer to the top of the pay list.

"I think it's fair," he said, "for whoever is in office to have an increased salary."