The United States does not have enough engineers, technicians and assemblers to rebuild military space assets destroyed in a war with China or Russia, according to a RAND report published Aug. 31.
The study, “Breaking Glass, Missing Hands,” asks how quickly the country could replace satellites and supporting systems lost early in a protracted conflict. It sets the benchmark for reconstitution, the term for restoring lost capability, at 12 to 24 months, a pace much more demanding than the decade or so the report says it typically takes to replace an aging satellite.
The study examines whether the space defense industrial base could meet that timeline between 2027 and 2032. The authors argue that existing workforce gaps could take years to close, putting a 12-to-24-month timeline out of reach.
Gen. Michael Guetlein, now the Golden Dome director, sponsored the study while serving as vice chief of space operations. RAND Project AIR FORCE conducted it as part of a fiscal 2024 project titled “In Emergency, Break Glass,” with Alexandra Gerber as lead author.
Researchers analyzed federal labor and education statistics from October 2024 through March 2025, and interviewed industry representatives and education administrators from May through July 2025.
The report divides the space-supporting workforce into three categories.
The first is engineers who design and test space systems. Nearly 3 million Americans work as engineers in jobs requiring a bachelor’s degree or higher, but only about 3% of them work in industries RAND counted as supporting space: satellite communications, semiconductors and nonmetallic mineral product manufacturing that produces optical glass. RAND calls that grouping a subset of the space industrial base. Aerospace manufacturing was not included.
RAND estimates that those three counted industries account for only about 7,000 of 208,000 annual engineering job openings, noting that the space sector has little leverage against employers in the artificial intelligence, software and data analytics sectors that pay more and offer more flexible work environments.
The second category is “skilled touch labor,” the technicians and assemblers who physically build spacecraft. Using 2023 Bureau of Labor Statistics figures, researchers estimated about 30,000 annual openings for technicians, while only about 11,000 people earn the necessary qualifications each year.
For assemblers, including cleanroom technicians, they found about 244,000 annual openings with just 13,000 credentialed workers each year, a gap of 19 to 1. The space industry accounts for a small share of that demand, but it competes for the same pool as semiconductor manufacturers.
The third category takes the longest to build: specialists who advance infrared and electro-optical detection, and engineers who design systems to survive natural and man-made radiation. Qualified candidates hold master’s or doctoral degrees, and the expertise can take 15 years or more to develop.
Few schools offer advanced degrees in laser and optical engineering, and most specialists come up through electrical or computer engineering programs instead. Of recent doctorates in those fields, 70% went to foreign nationals, the report says, shrinking the pool eligible for classified work.
Security clearances slow hiring even further. In fiscal 2024, initial Secret investigations averaged more than 87 days while Top Secret cases took nearly six months, according to a Trusted Workforce 2.0 progress report RAND cites.
Separately, interviewees said even fully credentialed workers can take up to a year to become productive, and the report notes that cleanrooms and secure work areas cap how fast plants can absorb new hires.
Those interviewed described the central problem as “surging from zero.” Without steady production between contracts, specialized skills atrophy and experienced workers leave, taking with them the institutional knowledge needed to scale. RAND says writing surge-planning requirements into future contracts would help companies prepare to expand before a crisis.
Researchers found no consensus that emergency mobilization would work. Defense Production Act authorities could pull workers from other industries, but interviewees questioned whether that is feasible given security clearances, certifications and domain expertise.
RAND recommends roughly $5 million a year for scholarships, internships and academic outreach, plus an $800,000 study on whether workers from other fields could be retrained for surge production.
The report also suggests advocating for the expansion of the National Imperative for Industrial Skills program and evaluating the Navy’s Talent Pipeline Program as a model for the trades.
Another proposal would let Reserve Officers’ Training Corps graduates satisfy service obligations by working at qualifying space firms, and would extend the same option to SMART scholarship recipients now committed to civilian Defense Department jobs.
RAND assigns the policy lead to the assistant secretary of the Air Force for space acquisition and integration, arguing workforce capacity is a supply-chain and production risk, not an internal Space Force staffing issue.
Interviewees pointed to hiring pipelines and faster clearances, rarely mentioning robotics, process automation or AI as a way to cut the labor hours per satellite. RAND did not independently assess whether automation is feasible, but flags that absence as a gap in reconstitution planning.
Most space producers run at volumes too low to justify the investment in automation, though RAND argues a reconstitution surge could change that math.
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