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China was formed by independent states before Qin Shihuang united them all; the "Son of Heaven" of Zhou dynasty was like today's Japanese emperor, they were titled as the monarch of China, but they only had very limited power and held a very small territory. Different states ruled their own people by their own laws. Make it simpler, China was like a confederation, so it was never united until Qin dynasty

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11y ago
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Q: What did Zhou kings divide their territories?
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