That is why I am creating a "package deal" scenario that ensures at least two first round picks for Rodgers and Adams. I'm looking at it holistically.
Your scenario
I'm not talking tag and trade. What if, after Adams has been franchise tagged on February 22, Adams effectively negotiates and receives an offer that the Packers decline to match prior to March 16? Then the $20.12M does not hit cap, correct? (Asking because I don't know.) Using that assumption is why I created my above scenario. Yes, it would cost two 1st round picks, but would be mitigated if team knew they were now getting Rodgers at a low cost. Everyone is happy - a team gets Rodgers and Adams, Rodgers and Adams are happy to be together, Packers get picks. Everyone except Goodell since this implies some under-the-table agreements...