When characters initiate PvP combat in Ratchet (and possibly booty bay, gadgetzan, winterspring), the guards are not becoming aggressive to those players.
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The attacked player needs to be at least Friendly with the relevant Reputation in order for the guards to respond. It’s always pretty toxic on a fresh server.
That must have changed at some point, because in wrath and retail they work the opposite way, attacking any player who initiates PvP unless rep is friendly or above.