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There is a free roaming mode.
But no, there are no police or rival racers running around on the free roam mode, only regular civilian cars. Actually you can't even choose time of day and whether you want to start free roaming as a police car or a racer, basically each spot you can choose to start driving around is tied to police or racer cars and a certain time of day which is a bummer, especially when time of day system is actually dynamic and will go by as you drive around.
I really wish there was a mod to enable both of these options. Shouldn't be that hard to do and would give free roaming so much more value.