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(WHOOPS, didn't have Art of War DLC selected)
Some random events do.
That event whose options are +10 unrest in a province or -30 ADM -> the second option also increases Bureaucracy by 3
The event to grant priviledges to a foreign country (trading Legitimacy for increased tax + relations, or increasing legitimacy and hurting relations) changes the Meritocracy vs. Patrimonialism.
Since posting I have discovered around ADM tech 10 you get a policy that allows for you to increase a couple fo things every 5 years or so, but I don't really know what any of those modifiers do except for the bureaucracy triggered modifier. That mechanic seems to be broken though because I have increased governability every way I can for almost 100 years and it is at 42 which by 1600 is the size of natives and a couple Africans but everyone else is much larger than that.
@NumberSmith This is the last time I am going to bother answering this because it is the question I asked at the top and no one has bothered to read that I have already answered it twice. Get ADM tech to 10 and a policy appears that once activated allows you to increase bureaucracy every 5ish years, the policy is incredibly expensive so unless you are one of the Western Europeans who will have most of your power coming from colonies the policy will not ever let you fix the insuffecient bureaucracy modifier. I have had the policy activated as soon as I got ADM 10 as byzantium in regular game start and am nowhere near the level I need to get rid of the triggered modifier.