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Problem is that naval bases recruit slowly, so you need to build shipyards one by one as the demand rises, not all at once.
Training rate (speed of recruitement) depends on chosen production methods of naval bases - select highest, if you have enough officers in the state. It also gets a malus if you have military wages lower than medium, but raising higher than that won't help.
Also, there are some events that modify it, but they are very specific.