A bit of historical knowledge and just using orders to expand it, open naval academy for behind nations, trading for technology, could probably loot a bit if the right nations fought etc. No one could issue an order to develop modern carriers atm but someone behind could issue an order to pay X money towards developing ironclads. If you feel they paid too little then for sure it fails, a huge amount and for sure it succeeds, a fair amount and toss a coin or roll a dice. If they fail but paid some towards it, next time it is that much easier to reach.
Cool, we might be able to do that then.
