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Such transfers put high demands on the capacities of states and naval administrators in controlling the flows of necessary resources and skilled labor, requiring complex arrangements between states and private capital. Industrialization did not change this basic fact, but it did change the nature of these arrangements. Although shipbuilding knowledge always remained practice-driven, highly mobile and susceptible to local adaptation, the increasing technological demands created by the transition from sail to steam and wood to iron, combined with the extensio
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