Jason,
The first thing to note is that only CEs in the same location as the Root CE (i.e. the Root Location) can become backup Root CEs. The list of backup Root CEs is created by a hash function using various internal values.
In ACNS 5.2 we added the ability to influence the order in which CEs are used as backup Root CEs. You can set this preference in the CDM under:
Devices > Devices > Prepositioning > Location Leader and Forwarder
Adjust the slider for the Location Leader Preference. The higher the preference, the more likely a CE is to the become the Location Leader (note that the Location Leader in the Root Location is also the Root CE).
Hope this helps.
~Zach