For anyone is new and missed it, these colonies with 0 slots, that can be turned into Collab Government, then it can have 9 or 11 slots unlocked by the generic Focus Tree.
Im not sure if is 9 and the 2 extra is from industrial research, is hard to track these things.
Another advice is: the devs changed the initial occupation law to martial law(or whatsover i don't remember).
So when u play with Portugal or a country that have colonies that already start with 50%, don't forget to swap to the Civilian Oversight at begin, otherwise u will lose collaboration.
Im not sure if is 9 and the 2 extra is from industrial research, is hard to track these things.
Another advice is: the devs changed the initial occupation law to martial law(or whatsover i don't remember).
So when u play with Portugal or a country that have colonies that already start with 50%, don't forget to swap to the Civilian Oversight at begin, otherwise u will lose collaboration.