At this point, scenario 1 seems like the ideal way to proceed and see what happens. But one point I'd like to iterate is that; if EVERY cop spawn is counted when deciding the online cop count, as everyone might guess, there will be people who will take advantage of this situation and spawn as cops to trigger a bank robbery. A lot more weight will be on admin/staff members because reports will start to pour in on this issue. Let alone, this will even cause bigger chaos between cop-side players and criminals. The community is as toxic as possible at this stage and giving them stuff to provoke each other will just make things worse and eventually make the server inhabitant for all of us. On that note, I'd like to pitch in the same idea I've been slandering on this platform. Instead of just counting cops that are SPAWNED as official squad spawns, make it so that If an official squad member is ingame (regardless of the spawn) they will count as +1 in the cop count.
I do know that with the current state of the official squads, this might still bear the problem of "not enough cops to br" issue, but I think in the name of greater good, consequences could be dealt with.
(EDIT: I, again, know people might quit to reduce the cop count for BR's. As for this issue, we could bring a system that if a cop leaves the server, their count (the +1 that player adds ) will be in tact for about 10 minutes.
E.g.; There are 10 official squad members online. A squad member leaves the game at 13.00. The count will remain as 10 until 13.10. This should give criminals the window they need to regroup and fly to the bank even if a random official squad member decides to leave the game to prevent the br.)