scowling to threatening can be a huge zone, bigger than several faction zones of non-KoSness. Faction building for characters that are very KoS, like an evil race necromancer have always been for people who are exceedingly interested in going somewhere in particular. I hardly remember an evil race going around HK uninvis on live because it was just not worth the time spent to become welcome there. (especially with the prevelance of guard killing)
TL;DR version: raising faction is something only reasonably achievable by a high level with time on their hands and it has always been that way
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