I would think there could be a way to code it so that citizens are not targetable but could be knocked down and thrown about from big explosions and what not as they are trying to flee. And make it so that they are fleeing out of the building, into the building or otherwise getting away from the villain. I know it's been said that the bank heist hero is random and will be looked at so I ask that the swat be looked at too. They, as been said before, are just a little too powerful.
My 2 cents.