NVM I found it, it is in the rules just didn't read carefully
- (first invasion) place admiral disks clockwise from player with lowest numbered start world, stacking disks as needed.
- (subsequent invasions) in descending order, shift disks to match military strength
so I take it the person with lowest start world will always get to go second.
then in the future:
IF tied previous round -> tied this round, then whoever was first position will become second position in the next round
IF not tied in previous round -> tied this round, then whoever had the lowest position will become first position (since highest military disk will move first, and thus be on the bottom).
Am I interpreting correctly?