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In the middle of "Starship Mine"
Captain Picard pretends that he is Mr. Mot, a barber. When terrorists finds his comm-badge, they say to each other that he certainly isn't a barber, he must be a Starfleet officer.
I'm surprised to find out that non-officers don't have their own comm-badges. How do they communicate with each other in all these situations, where officers use their communicators?
In TNG "The Neutral Zone" we learn that civilians can use a comm panel. In that episode the crew finds a satellite drifting in space. On board are cryogenic frozen humans from the 20th century. While in the guest lounge, one of them watches Riker using the a comm panel to talk to Picard. He later uses this knowledge to call Picard for every thought he wishes to share with him.
[Ready room] RALPH [OC]: Captain Picard?
PICARD: This is Captain Picard. To whom am I speaking?
RALPH [OC]: Ralph Offenhouse.
[Guest lounge]
RALPH: I need to talk to you.
[Ready room]
PICARD: What is going on here, Number One? Did you give him permission to contact me?
RIKER: Of course not. He must have seen me use the comm panel.
I don't think you can deduce from that one conversation that Star Fleet's enlisted personnel don't have comm badges. Indeed we know that they do, since Chief O'Brien is not an officer but has a comm badge. So the terrorists are perhaps not entirely familiar with Star Fleet's ranks and just refer to anyone from Star Fleet as an officer. Or they deduced from Picard's age and personality that he's more likely to be an officer than an enlisted man.
First we need to take into account that com badges are not just communication devices. They are not simple phone analogies. They allow (probably encrypted) subspace communication over 40000 km, are used as transporter location and boosting beacons, allow remote access to ship computers, have embedded universal translators, etc. They are highly advanced and important technology. These are akin to current day encrypted military satellite phones.
They also signify Starfleet commission. They are badges in the same way modern day police have badges. They can denote rank and position. So non starfleet officers (i.e. personnel) will not have them.
The Enterprise does have an internal communication system as well. This is accessed by general computer terminals. Communication over this can be secured or unsecured, and the com badges can be linked into it. As we rarely get glimpse of civilians at work or personal in the show, we can only make general assumptions. The Enterprise is a mixed population ship, fairly large, so any design would recognize the need to have some capacity for civilian inter ship and ship to planet communication. DS9 shows Jake and Nog can communicate and receive personal live communications. Voyager shows that personal communication is restricted when bandwidth was limited.
But in TNG two instances of Civilian to Officer communication does happen over com badges, for personal matters. Both involve the on board school. Worf and Data are notified that their kids aren't fitting in and that they need to go pick then up.
essentially, civilians use the same ship communication system, but just don't activate it through the com badges they lack.
All starfleet personnel have combadges for communications. Not to mention; The ship has an entire network of internal communications array. One does not need a combadge to talk. Thoughout the ship there are screens integrated to permit non personnel to have library/computer and communications access. According to the TNG" Technical manual, hardware configurations for dedicated intraship communications involves dataline sets and terminal node devices distributed throughout the ship. So they have an assortment of communications means. Their own personal communicators, PADD's, Desktop viewers.
