The second team won't be a problem for you in these 2 cases:
- they all play in a fictive country.
- they can only join countries with less than X users or in the X smallest countries. The managers of these countries would be allowed to have a second team in the X biggest countries. That would be dynamic.
Like the 1st suggestion, make a league for 2nd clubs and let them have fun.
The 2nd idea is not bad too, but anyway there is an advantage for bigger countries to make farms.
This is where we hold them!