This is an interesting topic

. The naval factories should reflect the naval units (represented in game, so nothing 'below' a DD or SS) being built by those nations at the time. While the UK had huge ship-building potential, it didn't get going until 1937 (when it laid down 5 BBs and 4 CVs, and a bunch of smaller ships) - so the questions should be:
- Can the UK quickly convert/get through NF naval factories to boost it's production when war looks more likely (ie, a 'modernise the fleet' NF, unlocked after WT hits a threshold), or is it possible to do at that pace through normal gameplay?
- What did Germany, the UK and Italy actually build in 1936?
I can't answer the first question, but I can answer the second (mid-way means they should be in the build-queue at start March '36, some to launch that year, some in '37. Note capital ships are finished when commissioned, but I only have 'launched' dates for DDs and smaller, so using them, rather than Wiki-ing every ship and spending all afternoon on this post - should give a good-enough rough guide):
UK:
- Was mid-way through one CV (Ark Royal)
- Mid-way through nine CLs (Aurora, Penelope, Perth, Birmingham, Glasgow, Newcastle, Sheffield, Southampton, Liverpool) and started another four (Gloucester, Manchester, Belfast, Edinburgh)
- Mid-way through 16 DDs (G, H and I class - Hasty, Havock, Hereward, Hero, Hotspur, Hyperion, Icarus, Ilex, Imogen, Imperial, Impulsive, Intrepid, Isis, Ivanhoe, Hardy, Inglefield) and started another 16 or so (Tribal class - Afridi, Ashanti, Bedouin, Cossack, Eskimo, Gurkha, Maori, Mashona, Matabele, Mohawk, Nubian, Punjabi, Sikh, Somali, Tartar, Zulu - I don't have laid down dates, but all launched in '37 and the UK tended to take more than 12 months to finish a DD, particularly pre-war)
- Mid-way through two SS (Spearfish, Sunfish) and laid down at least two (Sterlet, Triton)
Germany:
- Mid-way through two BCs (Scharnhorst, Gneisenau)
- Started two BBs (Bismarck, Tirpitz)
- Started one CV (Graf Zeppelin - just, but it was laid down on the 28th of the 12th, 1936)
- Mid-way through one CA (Admiral Hipper) and started three CAs (Blucher, Seydlitz, Lutzow)
- Mid-way through 12 DDs (Z5-Z16), started about three DDs (Z17-Z19)
- My SS numbers are a bit ropey (I don't have clear details on years, just ranges), but hopefully a decent estimate. Mid way through fourteen SS (U25, U26, U18-24, U27-31).
Italy:
- Mid-way through two BBs (Littorio, Vittorio Veneto)
- Mid-way through two CLs (Luigi di Savoia Duca Degli Abruzzi, Giueseppe Garibaldi)
- Mid-way through four DDs (Vittorio Alfieri, Giosue Carducci, Vincenzo Gioberti, Alfredo Oriani)
- Started two SS (Foca, Zoea).
From all of this, my thoughts (rough, just my 2 cents, to add to the convo):
- In 1936, Germany should probably be a little closer to the UK than 19 to 11, as BBs and BCs are expensive. However, the UK should have the capacity to expand it's capacity substantially in 1937 (when it was still building large numbers of CLs and DDs, started building new subs and laid down nine capital ships). Once the UK got going, it built a
lot of ships. Not as many as the US over 1936-48, but no-one else came close.
- Giving Italy near the same amount of dockyard capacity as Germany in '36 seems a bit off. I'm putting together some stats, but only just finished the UK (sooooo many ships, soooo many classes.....), so don't have a feel for Italy. Germany built so few ships outside of U-boats after its 1936-37 splurge that it's easy to see what happened for them though.
On the tech front, though, I'm not up-to-speed on the various strengths and weaknesses, but I've never really got the impression Germany was ahead on naval tech outside of u-boats.