Well I figure, that this is needed, more then anything, well the towns in cyridill would be more neutral teritory, thus if a npc sees you kill an enemy player you get a thousand gold bounty each time you do so, in towns like bruma, and then the guards in cyridill can send out enforcers, to attack you or to try and collect a bounty, and they fix all guards to be town guards no ep ad or dc guards in towns, and those guards can try and arrest you. This would make pvp better me thinks and discourage, attacking pvers in questing zones.
Now this would be intersting even though your a soldier at war with one another npcs in towns, don't want anything to do with it and they will try to keep it out of the towns, as much as possible, allowing npcs to also be killable all over cyridill could help with lag problems as well, but as always theres a price to pay for murdering and pillaging.

They could add the enforcer system with this, as well enforcers would have the right to hunt down those that break any laws, if its an enemy player there bounty gets cut in half if you kill them, and you get a half amount of the bounty itself if they had no gold the npcs play you anyways, you can also get an option to arrest a fellow player or take the bounty from them or they can run away and then you could hunt them down. Then of course you can get like 15 percent of the bounty of the player you tried to apprehend. Also if you mass murder people in pve areas and then go to cyridill to pvp then you would not be safe from enforcers in your own faction or others, they still can come after you. They can even add quests to hunt down a certain amount of lawbreakers, that gives like 50000 exp, for killing like ten of them. Dailies that can help with leveling and encourge players to participate in this.