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My feeling is that it would indeed be a dominant move for the Dom to keep her underwear on, at least initially. If the sub is quite keen on the whole situation, then it gives an option for the Dom to get the sub to beg for her to get naked. Although it depends entirely on just how much into the Dom/sub scene it’s going into. For a more casual dominance scene, that might be a bit much. But it would still be a power move for one to be naked and the dominant partner not to be.