I think limiting how many people are able to sell drugs in one zone via a trigger point, those who are first in are able to sell once the threshold has been met, anyone who enters until one person who can sell leaves, they're unable to sale.
This might have some fun first to the finish points for gangs, but for police it also means we can limit how many people can attend.
I'd also say then, if a chase is happening, as police generally follow the 5 max per chase, criminals should have a limit put on how many people can enter themselves into that chase.
It's about finding a balance. Though it's serious rp, unless we do find ways of limiting how many people take part, it'll be the same argument again.
Also reducing the ability of firearms in the city would also mean firearms command would site it as unnecessary for police to be walking around with guns also.
Because police work on policy and reactionary scenarios, it's hard to find the full balance unless a limit is put on per scene from a criminal stand point.
Ultimately though, we must remember though shootouts will happen, chases happen, arrests and each side winning and losing, the most important outcome should be the quality of RP that comes with it.
Aiming to have a shootout should never be at the forefront, instead making fun, diverse and interesting situations that are good for both parties is where the best outcome is.