The German war merrit cross was not just given to military personnel. The original war merit cross, designed for the military had crossed swords. Later, they created a version without the swords. Does that mean that any war merit medal without crossed swords was issued to a civilian?
I always thought that the crossed swords was the next award much like the Knight's cross with swords.
This site gives the criteria for each level of the War Merit Cross, for both with and without swords. War Merit Cross E.g.
Nope, just another level of the award. Now, they DID have a Knights Cross of the War Merit Cross. A friend of mine in San Antonio has one for sale--wants too much for it. (And he aint in a rush to sell it but)