Honestly I can understand where the confusion is coming from as the rule's definition isn't entirely clear but instead prohibits using NPCs and then a few other niche examples.

Ideally, the rule should be re-worded so that it better suits all RP scenarios, like reaching the cop count for a bank raid (if we were to go with stopping players from doing it). This was never an issue before afaik until the leaderboards came about so really the rule should have been changed ahead of time.