Sadly that was the decision of EA, for the very reason that Jimmy James posted. DICE fought to put mod tools in the game but their implementation got shot down by the suits who write their checks.
On topic, I fear for the longevity of RO2, with so many bugs still hampering its success people WILL flock to BF3 once it's out. Whether they were using it for filler or not people will move on from broken games, the majority of these gamers do not have the patience to wait for the game to be completed post release.
And they are justified in that, while they bought a license to play the game in whatever state TWI releases it in with no obligation to change or not change it most customers expect a product that is playable and free of major bugs or imbalance. Again, TWI are not obligated to have the game in that state at release or at any time in the future (Thankfully they DO feel obligated to do so as they care about their product/consumers), but obviously it's bad for business and customer retention to operate in such a way.
We're beginning to see the effects of the game being in the state it's in despite TWIs effort to remedy the problems, the population will continue to dwindle until the bugs and instability are eradicated. Soon it will indeed be just the RO vets and some new die-hards playing the game with it going down to Darkest Hour levels of player activity. Some may not mind that but it's no good for a game that's so new, niche or not. It's obvious TWI wanted RO2 to be a little less niche than its predecessor though, and they're not doing too well at keeping that broadened player base interested.
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