Kjay
Politicians find it very useful to have the law enforcement "lobby" on their side. Therefore when the politicians write weapons control laws, invariably they put in an exemption or exclusion for law enforcement officers. Since any law enforcement officer with a modicum of intelligence realizes he or she will be retired someday, the law enforcement "lobby" insists on CCW for retirees.
The Peoples' Democratic Republic of California has for a long time permitted retired peace officers CCW without having to go through the typical CCW application process. The way the penal code is written, it is almost automatic that CCW will be granted unless the officer retired to avoid being fired or retired because of stress disability affecting mental judgment.
The retired PDRK CCW authorization is contained in an endorsement on the retired officer's picture ID card that says he or she is a retired peace officer.
There is a problem in the retired PDRK peace officer CCW process. There is no state requirement for the retired officer to "qualify" with his weapon. When I go in to renew my ID card every five years, the Sheriff does not inquire if I can still shoot my piece accurately and safely. However, if I want to use my retired ID to carry nationally per H.R. 218 signed by President Bush, I need some certification from either my former employer, or the state in which I reside, that I meet state standards for CCW carry.
I have asked the sheriffs in Idaho, where I reside, and in the PDRK where I worked, for a certification letter to satisfy H.R. 218. Both sheriffs have told me they are waiting for the state to set standards for retired peace officer CCW. So, until someone makes up their mind, I have to count on my Idaho citizen CCW and my PDRK retired ID CCW to carry me through in states that recognize the two state's CCW licensing.
So, to answer your question, retired LEOs aren't treated as civilians because your elected representatives chose to treat them differently when it comes to CCW licensing.