you on the right path.
make sure that they on opposite faction and have (-1) in faction to faction relation. (basicly by default Freeport guards and local orcs have have this set up in PEQ DB)
AND what is most important, mobs on at least one of the side must be set to (1) in npc_agrro behavior collumn (simular to guards), otherwise they won't attack each other. However if you using say freeport guard base npc for freeport side army, then this agro flag is prabobly allready set.
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