I think there's some confusion in the OP's mind about what the gövt resource in Nova does. At heart, a gövt is a legal status. This only affects how shïps and spöbs affiliated with that gövt behave, and what missions are offered at those spöbs.
So a gövt cannot "come into existence". The gövt is always there. If it has an enemy, then raising legal status with that enemy will decrease legal status with the first government. The only way a player can "interact" with the gövt is by interacting with shïps and spöbs affiliated with that gövt. This includes mïsns offered at those spöbs.
In simple terms, each gövt is always there in the form of tracking the player's legal status. The only question is whether there are spöbs and shïps from that gövt to interact with the player, and what form those interactions take.