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And the answer to your second part is yes - but you have to realize that you don't have to build your government plaza in your capital city, you can build it in any one city in your civilization as long as you haven't met your district cap in that city.
There are I guess a couple ways you could go about it.
1 way is to place it in a densely settled area with 3-4 cities very close by so that you can cluster 6 districts surrounding the government plaza (since it gives a +1 adjacency bonus to districts)
Then of course the other one is the one you mention. I hadn't thought about that strategy before now.
You only need 2 close cities, I do it all the time. If you put your government center in the 2nd ring, so there are 2 hexes between it and your city center, then on the far side of that the second city center, so it's a line of 1-2-1-2-1 those double hexes get +1 from the Govt center and the city center, plus whatever is around them (for me, usually commerce near rivers.
Then you can also fill out the ring with other districts or wonders that add good adjacency bonuses. That's usually how I get +5 or 6 on my Culture districts.
It's also great for counterspy coverage.
I know because it happened to me. You can rebuild it though.