Proposed Transfer of Space Aligned National Guard Units
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INSIGHTi
Proposed Transfer of Space Aligned National
Guard Units
May 14, 2024
On March 29, 2024, the Secretary of the Air Force (SECAF) submitted a legislative proposal (LP480)
asking Congress to allow transfer of “covered space functions” of the Air National Guard (ANG) to the
U.S. Space Force (USSF) and waive 32 U.S.C. §104(c) and 10 U.S.C. §18238, which generally require
state governors to approve changes in the organization, allotment, relocation, or withdraw of National
Guard units within their states. The National Guard Bureau (NGB) (the federal agency responsible for
administration of the National Guard), governors from 50 states and 5 U.S. territories, and others oppose
LP480. Congress may consider whether to accept, reject, or modify LP480 as part of the FY2025
National Defense Authorization Act (NDAA).
Background
The FY2020 NDAA, P.L. 116-92, Subtitle D, established USSF as an armed service within the
Department of the Air Force (DAF). Upon USSF establishment in 2019, space functions of the Air Force,
and the Departments of the Army and Navy, transferred to the USSF. Some space functions remained in
the Air National Guard (ANG). Congress has not enacted legislation to transfer space functions from the
ANG to the USSF or to establish a Space National Guard.
FY2024 NDAA, Section 924, directed the Secretary of Defense to study “the feasibility and advisability
of transferring the space components of the Air National Guard to the Space Force,” and address three
courses of action (1) maintaining the current model with ANG units and personnel performing space
functions; (2) transferring ANG space functions, including units and personnel, to the USSF; and (3)
establishing a Space National Guard. The resulting study, dated April 2024, recommends “transfer of
covered space functions from the ANG to the Space Force,” including nine units totaling 578 positions in
six states (see Table 1).
Table 1. DAF Recommended Air National Guard Units for Space Force Transfer
Unit
Base
State
213rd Space Warning Squadron
Clear Space Force Station
Alaska
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Unit
Base
State
148th Space Operations Squadron
Vandenberg Space Force Base
California
216th Electronic Warfare Squadron
Vandenberg Space Force Base
California
137th Space Warning Squadron
Greeley Air National Guard Station
Colorado
138th Electronic Warfare Squadron
Peterson Space Force Base
Colorado
114th Electronic Warfare Squadron
Cape Canaveral Space Force Station
Florida
109th Electronic Warfare Squadron
Joint Base Pearl Harbor-Hickam
Hawaii
150th Electronic Warfare Squadron
Pacific Missile Range Facility
Hawaii
126th Intelligence Squadron
Springfield Air National Guard Base
Ohio
Source: DAF Report to Congressional Committees, “Report on the Feasibility of the Consolidation or Transfer of Space
Functions of the National Guard to the Space Force,” April 2024.
Notes: The DAF analyzed eleven units and recommended the above nine units for transfer to the Space Force.
Legislative Proposal 480 (LP480)
According to the DAF study, “at the request of the Congressional defense committees, a legislative
proposal [LP480] to accomplish the transfer has been provided for [Congress].” LP480, if enacted, would
allow the transfer of “covered space functions” and personnel of the ANG to the USSF waiving the
consent of state governors, and the consent of the district commanding general of the National Guard per
10 U.S.C. §18238, in the case of District of Columbia units.
FY2024 NDAA, Section 924 (e) and LP 480 Section (j), define “covered space functions” as “all Federal
missions, units, personnel billets, equipment, and resources of the Air National Guard associated with
performance of core space-related functions of the Space Force or other related functions integral to the
mission of the Space Force that is (as determined by the Secretary of the Air Force, in consultation with
the Chief of Space Operations)—(1) a core space-related function of the Space Force; or (2) otherwise
integral to the mission of the Space Force.”
LP480 would increase USSF end strength by the number of billets transferred and decreasing ANG end
strength by an equivalent amount in relevant fiscal years.
LP480 would authorize the Secretary to (1) change a transferred ANG unit’s status to USSF; (2)
deactivate the unit; or (3) assign the unit a new federal mission. Changing a unit’s mission would require
120-day notice and delay before DAF could move “any of the Space Force units, equipment, or billets out
of the affected state.” LP480 would direct the Secretary to establish Space Force units as “tenant units on
ANG installations.” If Congress adopts LP480, the DAF projects a $442.3 million shift in funds between
the USSF, USAF, and ANG over five years. The DAF study estimates “less than 3% of the ANG billets in
any of the six states would be affected.”
In correspondence with Utah Governor Spencer Cox, National Governors Association (NGA) Chair, and
separately with Colorado Governor Jared Polis, NGA Vice Chair, SECAF Frank Kendall states that
“[LP480] would facilitate a one-time transfer of certain missions into the [USSF],” and “does not
authorize the transfer of any other units from the National Guard, nor is it meant to set a precedent for the
transfer of any other units or disregard the critical role of Governors.”
Congressional Research Service
3
Differing Perspectives
Opponents of LP480 include governors from all 50 states and 5 territories. Of these, 53 state and territory
governors signed a joint letter from the National Governor’s Association arguing LP480 “disregards
gubernatorial authorities regarding the National Guard” and “undermines longstanding partnerships,
precedence, military readiness and operational efficacy,” impacting relationships between governors and
the Department of Defense (DOD) “at a time when [governors] need to have full trust and confidence
between [governors and DOD] to meet growing threats posed by the era of strategic competition as well
as natural disasters.” The Governors of Florida and Texas sent letters with similar arguments.
The National Guard Association of the United States (NGAUS) reported that “(s)urveys of Air National
Guard space professionals indicate that most do not want to transfer to the Space Force. Many are part-
time members with civilian jobs in high-tech fields.” NGAUS President, Major General Francis M.
McGinn, reportedly said many of them do not want to serve full time and do not want to be subject to
moving. One ANG leader reportedly said a survey of affected servicemembers found 70% would rather
retrain or retire than be transferred into the active-duty Space Force. National Guard leaders also
reportedly estimate the number of affected space personnel could be closer to 1,000 National Guard
members.
Issues for Congress
As written in LP480, the DAF recommendation to transfer ANG space units to the USSF could not be
implemented without congressional waiver of statutory provisions that require gubernatorial consent.
Congress would also need to consider whether to authorize and appropriate funding to facilitate transfer
of members, missions, and associated equipment to the USSF. Congress may consider whether to accept,
amend, or reject DOD’s proposal. Congress could consider the DAF’s alternative options and could
consider how the implementation of the Space Force Personnel Management Act (FY2024 NDAA (P.L.
118-31) could apply to National Guardsmen assigned to space functions. Congress could also initiate
further reviews of policy implications through hearings or studies.
Author Information
Sarah Gee
Jennifer DiMascio
National Defense Fellow
Analyst in U.S. Defense Policy
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of
Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of
information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role.
CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United
States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However,
Congressional Research Service
4
as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
IN12377 · VERSION 1 · NEW
INSIGHTi
Proposed Transfer of Space Aligned National
Guard Units
May 14, 2024
On March 29, 2024, the Secretary of the Air Force (SECAF) submitted a legislative proposal (LP480)
asking Congress to allow transfer of “covered space functions” of the Air National Guard (ANG) to the
U.S. Space Force (USSF) and waive 32 U.S.C. §104(c) and 10 U.S.C. §18238, which generally require
state governors to approve changes in the organization, allotment, relocation, or withdraw of National
Guard units within their states. The National Guard Bureau (NGB) (the federal agency responsible for
administration of the National Guard), governors from 50 states and 5 U.S. territories, and others oppose
LP480. Congress may consider whether to accept, reject, or modify LP480 as part of the FY2025
National Defense Authorization Act (NDAA).
Background
The FY2020 NDAA, P.L. 116-92, Subtitle D, established USSF as an armed service within the
Department of the Air Force (DAF). Upon USSF establishment in 2019, space functions of the Air Force,
and the Departments of the Army and Navy, transferred to the USSF. Some space functions remained in
the Air National Guard (ANG). Congress has not enacted legislation to transfer space functions from the
ANG to the USSF or to establish a Space National Guard.
FY2024 NDAA, Section 924, directed the Secretary of Defense to study “the feasibility and advisability
of transferring the space components of the Air National Guard to the Space Force,” and address three
courses of action (1) maintaining the current model with ANG units and personnel performing space
functions; (2) transferring ANG space functions, including units and personnel, to the USSF; and (3)
establishing a Space National Guard. The resulting study, dated April 2024, recommends “transfer of
covered space functions from the ANG to the Space Force,” including nine units totaling 578 positions in
six states (see Table 1).
Table 1. DAF Recommended Air National Guard Units for Space Force Transfer
Unit
Base
State
213rd Space Warning Squadron
Clear Space Force Station
Alaska
Congressional Research Service
https://crsreports.congress.gov
IN12377
CRS INSIGHT
Prepared for Members and
Committees of Congress
Congressional Research Service
2
Unit
Base
State
148th Space Operations Squadron
Vandenberg Space Force Base
California
216th Electronic Warfare Squadron
Vandenberg Space Force Base
California
137th Space Warning Squadron
Greeley Air National Guard Station
Colorado
138th Electronic Warfare Squadron
Peterson Space Force Base
Colorado
114th Electronic Warfare Squadron
Cape Canaveral Space Force Station
Florida
109th Electronic Warfare Squadron
Joint Base Pearl Harbor-Hickam
Hawaii
150th Electronic Warfare Squadron
Pacific Missile Range Facility
Hawaii
126th Intelligence Squadron
Springfield Air National Guard Base
Ohio
Source: DAF Report to Congressional Committees, “Report on the Feasibility of the Consolidation or Transfer of Space
Functions of the National Guard to the Space Force,” April 2024.
Notes: The DAF analyzed eleven units and recommended the above nine units for transfer to the Space Force.
Legislative Proposal 480 (LP480)
According to the DAF study, “at the request of the Congressional defense committees, a legislative
proposal [LP480] to accomplish the transfer has been provided for [Congress].” LP480, if enacted, would
allow the transfer of “covered space functions” and personnel of the ANG to the USSF waiving the
consent of state governors, and the consent of the district commanding general of the National Guard per
10 U.S.C. §18238, in the case of District of Columbia units.
FY2024 NDAA, Section 924 (e) and LP 480 Section (j), define “covered space functions” as “all Federal
missions, units, personnel billets, equipment, and resources of the Air National Guard associated with
performance of core space-related functions of the Space Force or other related functions integral to the
mission of the Space Force that is (as determined by the Secretary of the Air Force, in consultation with
the Chief of Space Operations)—(1) a core space-related function of the Space Force; or (2) otherwise
integral to the mission of the Space Force.”
LP480 would increase USSF end strength by the number of billets transferred and decreasing ANG end
strength by an equivalent amount in relevant fiscal years.
LP480 would authorize the Secretary to (1) change a transferred ANG unit’s status to USSF; (2)
deactivate the unit; or (3) assign the unit a new federal mission. Changing a unit’s mission would require
120-day notice and delay before DAF could move “any of the Space Force units, equipment, or billets out
of the affected state.” LP480 would direct the Secretary to establish Space Force units as “tenant units on
ANG installations.” If Congress adopts LP480, the DAF projects a $442.3 million shift in funds between
the USSF, USAF, and ANG over five years. The DAF study estimates “less than 3% of the ANG billets in
any of the six states would be affected.”
In correspondence with Utah Governor Spencer Cox, National Governors Association (NGA) Chair, and
separately with Colorado Governor Jared Polis, NGA Vice Chair, SECAF Frank Kendall states that
“[LP480] would facilitate a one-time transfer of certain missions into the [USSF],” and “does not
authorize the transfer of any other units from the National Guard, nor is it meant to set a precedent for the
transfer of any other units or disregard the critical role of Governors.”
Congressional Research Service
3
Differing Perspectives
Opponents of LP480 include governors from all 50 states and 5 territories. Of these, 53 state and territory
governors signed a joint letter from the National Governor’s Association arguing LP480 “disregards
gubernatorial authorities regarding the National Guard” and “undermines longstanding partnerships,
precedence, military readiness and operational efficacy,” impacting relationships between governors and
the Department of Defense (DOD) “at a time when [governors] need to have full trust and confidence
between [governors and DOD] to meet growing threats posed by the era of strategic competition as well
as natural disasters.” The Governors of Florida and Texas sent letters with similar arguments.
The National Guard Association of the United States (NGAUS) reported that “(s)urveys of Air National
Guard space professionals indicate that most do not want to transfer to the Space Force. Many are part-
time members with civilian jobs in high-tech fields.” NGAUS President, Major General Francis M.
McGinn, reportedly said many of them do not want to serve full time and do not want to be subject to
moving. One ANG leader reportedly said a survey of affected servicemembers found 70% would rather
retrain or retire than be transferred into the active-duty Space Force. National Guard leaders also
reportedly estimate the number of affected space personnel could be closer to 1,000 National Guard
members.
Issues for Congress
As written in LP480, the DAF recommendation to transfer ANG space units to the USSF could not be
implemented without congressional waiver of statutory provisions that require gubernatorial consent.
Congress would also need to consider whether to authorize and appropriate funding to facilitate transfer
of members, missions, and associated equipment to the USSF. Congress may consider whether to accept,
amend, or reject DOD’s proposal. Congress could consider the DAF’s alternative options and could
consider how the implementation of the Space Force Personnel Management Act (FY2024 NDAA (P.L.
118-31) could apply to National Guardsmen assigned to space functions. Congress could also initiate
further reviews of policy implications through hearings or studies.
Author Information
Sarah Gee
Jennifer DiMascio
National Defense Fellow
Analyst in U.S. Defense Policy
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of
Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of
information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role.
CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United
States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However,
Congressional Research Service
4
as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
IN12377 · VERSION 1 · NEW