The boundary relation[0] has roles for both admin_centre and label, though I don't know how many renderers are using them currently. For some reason, a lot of places (including the US) seem to have standardized on using multipolygons instead of boundary relations for administrative boundaries. I'm still not sure why, since the boundary relation seems to me to be a better fit for the data.
I agree - the boundary relation + admin_centre role for the "county seat" or "town center" is the best fit. I have applied this to several regional counties and will see how Nominatum is improved.
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