As well as defining states into a federation, there was also a problem of ethnic representation before and after Panglong. Moreover, the exact meaning of the important concepts of a federation' and 'union' were never developed in a detailed sustainable form before the constitution was written. A precise specification of the power sharing and delegation of authority between the central state and the federate state never materialized. The term 'union' came to be used more and more to mean a unitary state (as used at present by the State Peace and Development Council) of mixed ethnic origin but as one nation. The Chin representatives, for example, did not understand the difference between federation' and union' according to Lian Sakhong (2003: 215). sa The conflicting statements by the Karen in Salween during the Frontier Areas Commission Enquiries (FACE) following Panglong is another example of the confusion. The Salween Karen did not want to be represented by Delta Karen who had never visited their district (Gravers chapter 9 in this vol). Internally they were divided: those who experienced the Japanese and BIA atrocities, mainly members of 136 and Christians, wanted an independent state federated with Kayah or a Frontier Area state; those who had not experienced such sufferings preferred to join Ministerial Burma. However, to most of the Salween Karen the difference between federation and union was unclear and they frankly admitted this. Further, the division between the two types of excluded areas (Part I and II) confused most representatives. The Frontier ll meint to clarify matters after Panglong and secure all opinions, but it only added to the confusion. For example, FACE included Kayah in the projected federation with Burma although according