Indeed, the spreading of the Mandate of Bao is more of a customary tradition, and it is written in the texts to be understanding of those who would not willingly follow it, for they would have their own beliefs that may be true for them as well.
After much consultation with the Parliament it was decided that none of the affiliated tribes in vicinity to Ru'sha or Mawahae were willing to give up there lands. It was after this that the Speaker for the Merchants, Lithana, suggested that there could be a city that the nations would have joint custody over such as to facilitate free trade throughout the region. Right accross the channel from Agoria was an island of strategic importance.

Already on the center of major trade routes, this island is uniquely situated at the crux of four separate currents that the Mahowaeaens had identified.
The easterly Adrianic current at this point hits the Ru gulf coast current coming in from the west, allowing for ease of reaching this island from either Atensia or Ru'sh Naal.
From there the currents converge and the Adrianic current is shot north into the Estic Ocean, where around Mawahe one can piggyback onto the Ru gulf coast current as it heads south inland.
Also at this location is the Utesian equatorial countercurrent which generates a vortex in the small sea to the west of the island, which on seasons that the storms are not too severe, can be used to quickly reach the island from the south west and when following the same current bringing you back to the equetorial current flowing back towards Atensia.
Seeing the island as being economically significant to both nations, it is proposed that through the funding of Atensia, and the materials shipped from Ru'sh Naal, that the city be built and given local governance provided it follows the rules of the nations of Ru'sh Naal and Atensia where applicable.
Ru'sh Naal could as well provide the naval defense of the city should Atensia provide a garrison.
The city would be built primarily to house and repair ships as well as facilitate trade throughout the region.
Rumors are spread across the land that the great Bao will soon end his seclusion of over thirty years.