Do the guards just keep asking you to stop, or do they eventually charge you a fine or something?
Do not use harmful shouts in towns against guards.
Non-Harmful shouts, you get a warning. Harmful shouts you get a bounty if used and a town guard was in the affected area, or a person was in the area a guard was happening by.
Tested all of the below.
If you hit a guard or a citizen, the below will make them hostile:
- Unrelenting Force
- Fire Breath
- Frost Breath
- Ice Form
- Marked for Death
- Storm Call
Source : Link , Question Author : Kecoey , Answer Author : Lore Friendly