Epic Paperwork

Needs Roads to Power, and it must be the "Adopt Centralized Administration" DECISION - starting administrative or being absorbed into an admin realm doesn't count. The wiki's shortcut: swear fealty to the Byzantine Empire (already administrative), which puts the decision's requirements in easy reach, then take it from the Decisions tab. Check the decision tooltip for the exact prerequisites in your situation. New Management, same as the Old Management is the same decision taken from a much stranger angle.