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You're meant to form them by doing "prepare collaboration government" missions via your intelligence agency. The real issue with the collaboration governments is not base compliance gain, but the fact that the aforementioned mission can't be done on already annexed/fully occupied territory.
Non democratic countries are the only ones who can form them, yet they can't form them until the game is pretty much over. It makes no sense that democracies have faster compliance gain, when you have countries like Ukraine who ran into the Nazis arms and w/e.
Might have a idea for this mod if you're interested!