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I agree completely with your last point. I accept basic utilities are granted a monopoly, but with that comes common access.

Maryland also doesn't want the NSA to leave since federal money is a huge part of the state economy. Also denying state contractors from providing support could cause massive disruptions. I imagine a lot of basic services at government facilities overlap (custodians, food services).

Unfortunately the states don't really have any legitimate tools to punish the federal agencies. I suppose since the NSA is under the DOD they could rollback state benefits to military but that'd be very unpopular. They could also go NJ style and close down roads outside their headquarters.