If the city/province is built up quite a bit and if it is a different culture than mine, I often will build the type4 so that I can get some different units to join my faction's army.
If you do build a type4 though, don't feel bad about destroying it later and building a better one - that is entirely cool in our system.
There will be a change in this though, a slight one, in 0.8. You will first build a "Regional Pacification" or if you like a "Temporary Military Authority" in the province that only takes one turn but grants some measure of pacification in the place. Then once you do that, you can begin constructing your 1-4 government choice. The reason is that it lets us put all four govt complexes into a single complex, and let this first level be the initial one needed for "paths" to split off from it. Plus, it's nice because it's pretty logical - takes one turn to calm things down and establish control.
In the future, it is entirely possible that we will make most all buildings unable to be built until either this Regional Pacification level is built, or maybe even until a real government level is constructed. But we aren't sure about that yet. Leaning towards it I think though.

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