You can only do this to people who have pets(hunter&lock)...
It is working as intended,but not much people know this...
Make a level one blood elf(must be healer)
swim to isle of QD and heal ourself,so you dont die...
when you get there look for opposite faction hunters/warlocks and attack them
90% of them have pet on passive,andtheir pets would attack you,and than guards would attack them...
you are a level 1,so the bill isnt a big deal for you,but it is for them

enjoy
P.S. you can also do this in neutral cities like BootyBay ; Everlook,and othere cities where there are neutral guards(except shattrath)