I don't think this is either an embarkation or an AI issue. There are ancillary issues that would come up if navies were more important due to poor AI, but that's not anywhere near the primary problem.
EVEN IF the AI was good with its navy, navies would be pointless, because there's simply nothing to fight over.
To increase the value of navies, two things need to happen. First, there needs to be a point to maintaining control of the seas. It has to get you a benefit. Controlling the land gets you cities, population, resources, etc. Controlling the seas gets you nearly nothing - easier access to certain bits of land. Any step in this direction would help, from a full blown colonization and sea trade model to just giving you lots of gold for blockades. If all you're fighting over is access to the less important bits of land, is it any wonder that navies are undervalued compared to the land?
Second (and not strictly necessary, but certainly important if you want to emphasize the seas), there's no real concept of controlling the seas. On land, success gets you boundaries that expand over the land from control points. On the sea, nothing. If there was some system, displayed on the map, which represented success, you could be satisfied with successes at sea. For example, we could display trade routes and give sight off them.
EVEN IF the AI was good with its navy, navies would be pointless, because there's simply nothing to fight over.
To increase the value of navies, two things need to happen. First, there needs to be a point to maintaining control of the seas. It has to get you a benefit. Controlling the land gets you cities, population, resources, etc. Controlling the seas gets you nearly nothing - easier access to certain bits of land. Any step in this direction would help, from a full blown colonization and sea trade model to just giving you lots of gold for blockades. If all you're fighting over is access to the less important bits of land, is it any wonder that navies are undervalued compared to the land?
Second (and not strictly necessary, but certainly important if you want to emphasize the seas), there's no real concept of controlling the seas. On land, success gets you boundaries that expand over the land from control points. On the sea, nothing. If there was some system, displayed on the map, which represented success, you could be satisfied with successes at sea. For example, we could display trade routes and give sight off them.