Bundle.start() returns without starting the bundle

[Sahoo]

While investigating some issues in GlassFish, what we are seeing is that 
even if our code is calling bundle.start(START_TRANSIENT), the bundle is 
not getting started immediately, nor is the code blocking. It simply 
returns without Bundle's activator getting called and bundle.getState() 
== RESOLVED. We see this happening when there is a start level change in 
progress. We are currently using Felix 4.0.2. Looking at the code, I see 
this to be by design, but isn't it a non-compliant behavior? Should 
bundle.start() not wait until the bundle is started?

Thanks,
Sahoo