That being said, this isn't real life. Many of you call RO a 'military sim'. Well, it's about as realistic a game as they come, for sure, but a game nonetheless. Before something like this could be implemented, there's a few things that changes like this need to be held up against. Like, will a change like this actually improve the gameplay? And, how long would a change like this take the Devs to code and implement properly?
America's Army gets away with the civilians because of the Honor system. Shoot a civilian, even by accident, and your ROE goes through the roof, having a rather noticable effect on your Honor points.
There's no such system in place for RO, and thusly, no consequences. Having civilians in the maps would be cool at first but, eventually, shooting them would become just one of those things you do at the start of each round, like attaching your bayonet, just to make sure that they don't happen to get in the way later on.
For the second point, the amount of time and effort that the Devs would have to take to implement civilian bots that can walk around with some resembalnce of intelligence, as welll as pick up weapons and engage in the battle, would be far, far better off working to repair glitches that will certainly crop up, or adding new maps and/or weapons/tanks/etc. I'd much rather have my Mauser C96 back (since I just noticed it's vacancy in the weapons list), than to see random NPC civilians running around.
On top of that, NPC bots like this are just another non-static element that each server would have to keep track of, and devote memory to, which would almost certainly contribute to lag and slowdown.
If people feel that civilians played such a massive roll in engagements, then they should be implemented through means of a selectable class. Weapons loadouts could be completely random, including weapons from the opposite side as civilians would likely have grabbed anything they could get, and a specialty set of skins could be made for that class.