Attaching a Modifier at the Game Level

I was having a look at the new Modifiers in Civilization 6 Rise and Fall and spotted something I didn't see saw before--Modifiers other than Diplomacy modifiers attached at the Game level, as opposed to being attached at the Civilization, Leader, Building, etc level. The only example of this I can find is the Government building modifiers, shown here in Firetuner:





It seems to implemented by using a CollectionType of COLLECTION_MAJOR_PLAYERS. What I don't know is if that is enough to instantiate the Modifier and make it active during a game. All other modifiers in the game require you to attach them to something, but this Modifier is attached at the Game level making it fundamentally different:

Code:

        <Row>
            <ModifierType>MODIFIER_ALL_PLAYERS_ADJUST_GOVERNOR_POINTS</ModifierType>
            <CollectionType>COLLECTION_MAJOR_PLAYERS</CollectionType>
            <EffectType>EFFECT_ADJUST_PLAYER_GOVERNOR_POINTS</EffectType>
        </Row>

Anyway, just wanted to make note of it. I haven't used this Collection yet although I can think of some situations where it might be useful.