Hey, you definitely bring up some interesting points. Yes, implementing a system like that will likely do one of the two things you mentioned. However, imagine if criminals adopted the same mindset. Where they walk around with baseball bats with nothing illegal. This will result in LEOs doing nothing but printing tickets and giving reckless charges. It will eventually become stale for LEOs because personally, I enjoy the diversity in things you may experience as a LEO. Or even worse, do “anything” to win a situation as you said. Which will just result in poor roleplay and rule breaks. You may be right where this system isn’t the right method, and it is very possible that there may never be something that is implemented on the LEO aspect to make it seem fairer. My whole argument is that it’s really a 50/50 relationship with sacrifices on both sides but if the second one isn't content with what they are getting in return, it becomes a problem. I will end this by saying that I personally have no issue with how it is right now but as I mentioned I really haven’t dabbled that much in either so it would be unfair of me to speak much for either side, so I simply just state my opinion. So maybe you are right, if something isn’t broken then don’t attempt to fix it.
EDIT:
@John Nut and @Bala you both make a good point. If LEOs were forced to pay for things than they will likely implement a "try hard/play to win mentality". As I have stated I've dabbled in both, and truth be told LEOs are better RPers, and I wouldn't want that to change so I will be the first to say that my idea likely would not be beneficial to anyone.