The U.S. Space Force’s Space Training and Readiness Command (STARCOM) has been concerned that it does not have the manpower needed to meet its evolving set of requirements in preparing the force. To examine this issue, RAND researchers determined STARCOM’s manpower needs, created an optimization model for staffing decisions, and assessed its mission alignment and organizational structure.

Manpower Analysis to Improve the Functional Alignment and Organizational Structure of Space Training and Readiness Command Headquarters

Sandra Kay Evans, Nelson Lim, Andrea M. Abler, Naoko Aoki, Lisa Pelled Colabella, Ethan Doshi, Caroline Margaret Johnston, Sarah Nicole Kosic, Robert Romer, Joshua Simulcik, et al.

ResearchPublished Feb 10, 2026

Cover: Manpower Analysis to Improve the Functional Alignment and Organizational Structure of Space Training and Readiness Command Headquarters
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The mission of the U.S. Space Force (USSF) shapes all USSF activities, from doctrine and organization to training and policy. The Space Training and Readiness Command (STARCOM) plays a central role in this mission by preparing the force through training, education, doctrine development, exercises, wargames, and capability testing. However, its headquarters (HQ) has been concerned that it does not have the manpower needed to meet its evolving set of requirements. To examine this issue, HQ STARCOM sought to understand the manpower requirements and optimal workforce composition needed to address its missions and how it can organize to achieve improved alignment between its functions and missions.

To assess and improve its functional alignment and human resource allocation, RAND researchers determined HQ STARCOM’s manpower needs as it prepares its guardians—military and civilian personnel in the USSF—for space combat operations. In this report, the researchers present the findings and recommendations from their work, including an estimation of HQ STARCOM’s current and projected staffing levels and workload, an optimization model for staffing decisions, and an assessment of HQ STARCOM’s mission alignment and organizational structure.

Key Findings

  • Staffing gaps exist in virtually every directorate. There is more reported workload than personnel to conduct the workload. Civilians and contractors are used heavily across most directorates.
  • Unity of effort is difficult because personnel are fractionated across missions, roles are ambiguous, and the connection between functions and missions is unclear.
  • Structural tensions stem from the friction between STARCOM’s flat structure and the need for mission command and control, the misalignment of functions, and insufficient support from the U.S. Air Force and others.
  • Mission-related risks include strain on resources and personnel as a result of the mix of start-up, steady-state, and emergent or ad hoc functions and nonoperational tasks diverting staff from operational missions.
  • External factors also affect operations, including other entities’ misunderstanding STARCOM’s functions, split organizational alignment of the Operational Test and Training Infrastructure Integrated Program Office, and uncertainty related to the establishment of the Space Futures Command.

Recommendations

  • HQ STARCOM should use the STARCOM Staffing Optimization Model described in this report to aid staffing decisions and implement changes to improve organizational design.
  • To improve unity of effort, HQ STARCOM should (1) establish Guardian Development and Combat Credibility entities as O-6 or O-7 authorities, (2) establish a Management entity as a Senior Executive Service authority, (3) organize management HQ under a chief of staff role, (4) emphasize mission and management integration across all organizational levels, and (5) conduct a formal process for assigning responsibilities.
  • To relieve structural tension, HQ STARCOM should (1) align staff structure and processes with clearly defined roles and responsibilities, (2) prioritize primary missions, and (3) address external support concerns.
  • To address mission-related risks, HQ STARCOM should (1) develop and implement an organizational change management plan, (2) conduct bottom-up strategic planning, (3) establish a comprehensive organizational performance management program, and (4) establish a support contracts consolidation plan.
  • To influence or address external factors, HQ STARCOM should establish operational policies and procedures clarifying how HQ and deltas can navigate external factors, including how to elevate issues with external support entities.
  • For internal alignment of program managers and contracting officers within acquisition and contracting, HQ STARCOM should keep the program manager as the lead; having a contracting officer oversee a program manager is not advisable.

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Evans, Sandra Kay, Nelson Lim, Andrea M. Abler, Naoko Aoki, Lisa Pelled Colabella, Ethan Doshi, Caroline Margaret Johnston, Sarah Nicole Kosic, Robert Romer, Joshua Simulcik, Akshaya Suresh, Stephanie Williamson, Patrick White, and Emmi Yonekura, Manpower Analysis to Improve the Functional Alignment and Organizational Structure of Space Training and Readiness Command Headquarters. Santa Monica, CA: RAND Corporation, 2026. https://www.rand.org/pubs/research_reports/RRA3669-1.html.
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This research was sponsored by STARCOM and conducted within the Workforce, Development, and Health Program of RAND Project AIR FORCE.

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