I would say declare before battle because the two are radically different, unlike the Roman eras.
The only reason I brought this up is because Saka would be in line to receive discounts on cavalry units as a steppe faction, yet would get access to high quality infantry as well unlike Pahlava or Sauros. I thought of maybe making their infantry more expensive, but that is an impossibility since they share so many with Baktria and that would make Baktria unplayable. Me and Gamegeek had pondered how to "limit" the Saka a few days ago but this thought didn't cross my mind until now.
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