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can i add_modifier
in the beginning of the game without changing the country file?

I want my mod to be compatible with other mods
Yes, if you add a new country history file, say [TAG]2.txt, set up in the usual way (i.e. COUNTRIES = { c:TAG ?= { effects } }), and put your new modifier effect in there, that should maintain compatibility.
 
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For a new on_action? I believe the game reads on_actions "cumulatively" so adding a new on_action block in a new file should work as expected (and not overwrite anything). If you do want to modify an existing on_action though, I think you have to overwrite the file.
 
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