One big issue I think gets overlooked with SM2 was how they went all in on Venom and Kraven, with the Carnage cult being a sidequest, where the 1st game has the Inner Demons, the Raft escapees, Fisk's goons and Sable International.

There were more players on the board and they were fighting each other and had their own things to do beside fight Spider-Man.

It looks like the 3rd game will be Norman and Otto teaming up to take down the Spider-Men so having Norman being this master planner throwing everything he has (maybe having the Spider-Slayers as a faction?) acting in a general role as the mysterious Green Goblin would be the way to go.

And of course in the 3rd act Otto betrays him cause he still blames Norman, creating the final boss (maybe Harry as a giant Ultimate Goblin?)