As vgaetera pointed out, you are copying a UCI file and telling OpenVPN to read it, but OpenVPN expects a file in its native format.
Instead of using option config to point to an external file you can just write all the options directly in /etc/config/openvpn. Here is an excerpt of mine, where I do exactly this:
config openvpn 5678udp_server
option enabled 1
option port 5678
option proto udp
option dev tun
option ca /etc/openvpn/cavpn.crt
option cert /etc/openvpn/_VPN.crt
option key /etc/openvpn/_VPN.key
option tls_server
option dh /etc/openvpn/dhvpn.pem
option server "192.168.199.0 255.255.255.0"
list push "redirect-gateway def1 bypass-dhcp"
option keepalive "10 60"
option tls_crypt "/etc/openvpn/ta.key"
option persist_key 1
option persist_tun 1
option user nobody
option verb 3
option tls_version_min "1.2"
config openvpn 1234udp_server
option enabled 1
option port 1234
option proto udp
option dev tun
option ca /etc/openvpn/cavpn.crt
option cert /etc/openvpn/_VPN.crt
option key /etc/openvpn/_VPN.key
option tls_server
option dh /etc/openvpn/dhvpn.pem
option server "192.168.237.0 255.255.255.0"
list push "redirect-gateway def1 bypass-dhcp"
option keepalive "10 60"
option tls_crypt "/etc/openvpn/ta.key"
option persist_key 1
option persist_tun 1
option user nobody
option verb 3
option tls_version_min "1.2"
Note that my instances share the keyfiles. Some options can be shared, some cannot (e.g. server), and some should not depending on your needs (shared CA/keyfiles is bad if not all clients are allowed access to all VPN instances).
Most options are named the same as in OpenVPN, but you'll need to replace dashes (-) in OpenVPN names with underscores (_). So tls-version-min in OpenVPN documentation is tls_version_min in UCI. You can find all the options UCI can handle in openvpn.options, on your OpenWrt device it will be at /usr/share/openvpn/openvpn.options.
In addition, in your example you have named both config sections vpn1. This may cause issues, so give them unique names.