It's a tricky one, some pain in the arse really. It doesn't happen in Single Player or Co-op, only in MP. It's worse on bigger maps than smaller ones but it still happens in the weirdest of places none the less. It also only happens at 1200p and below. I haven't seen this issue in Eyefinity or 2560x1440/1600, if you have this issue at these high resolutions please let us know!
With people from both sides having the same problem it's pointing to either extremely poor programming whereas the game can't push out more than a certain FPS in any given situation at any time.
For example, I was practicing flying on an empty 64 player Caspian Border CQ and when I landed on the road there was a lot of trees next to me on the left (not graphically demanding) and the antenna on my right (can't be much more demanding).
Out of nowhere GPU's drop from ~120fps at 99% to ~120fps at ~85% usage on both. When I tabbed out and checked CPU all 8 cores were about 65%. So why does this happen? If only we knew
It is definitely balanced out in the sense that it keeps it >97% in places where it would drop to sub 90 but it's still happens in others but usage is increased a small bit.