In order to do so you'd have to create an entire paradigm that is centered around the Civilians, CI and GOC.
On top of that, Civilians would need an entirely different rule set, jobs and goals to create the desired RP outcomes. You'd technically have to create a CityRP completely independent on the surface from the Foundation.
Unless GMOD expands its total slots per server, it would be quite impossible to foster two separate game modes with 126 people, unless MTF/GOC/CI/Department slots are heavily reduced to make way for other jobs and roles designed for the surface. As it stands right now surface is just a foundation for something, leaning towards a battleground and nothing else. The kicker to this is how important civilian life is to the scope of SCP roleplay. With no causality for breaches and information leaks, all forms of breaching is essentially internally contained to CI/Foundation and thus the gameplay loop is created for those groups. If you had bustling civilian life that would react independently from those groups to these sets of information there would be more pressure for these groups to maintain their own party with more diligence, therefore higher risks for not doing your job.
As it stands;
Information/SCP breach > MTF reacts > Site Admin/Command/Leaders react and issue orders > breaches are contained
Information/SCP breach > MTF reacts > Site Admin/Command/Leaders react and issue orders > CI reaches the surface and tells civilians > Civilians have nothing they can do with the information or SCP's > Civilians hide all this information and or eventually die > time passes and everything goes back to normal unless civilians drag it out unrealistically
With that cycle, the server leans to a more combative stance, so the surface has and will remain just a battleground with nobody entering these civilian roles because there is nothing that is holding those groups up to actually be an integral part of the server, they're more background characters than anything.