There is a post up on the battlefield UK forums explaining the main reason they don't release mod tools. I'll have to see if I can find it again.
Basically it boils down to some legality issues. Some of the tools they use the develop maps and such are middleware that they cannot legally license out to make mod tools.
EDIT: See this thread
http://forums.electronicarts.co.uk/battlefield-bad-company-2-pc/1350772-so-how-about-modtools.html
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