| Shorts are defined as any article of clothing that covers either the butt crack or some part of the thighs, and has a strap that goes between the legs.
Shorts may not be worn with panties, because in some cases, the panties might show. Here is an example of a pair of shorts:
In the close-up view, below, you can see that the girl’s entire butt crack is covered (albeit barely) and there is a strap that goes between her legs.
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