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I'm sure the Advisor would of explained it to you at some point and you just missed it but you use it to Annex Han cities, not any faction
Quick Google Search
"there are two major uses for Unity:
Annexing Han Empire cities without a fight; costs 50 Unity.
Sending an officer on an assignment to boost satisfaction/loyalty for five years; costs 5 Unity."
Edit: after further research it seems in order to annex you have to go up like you are attacking the Han city and if you have 50 unity an option should appear to annex it instead of fighting. I can't confirm this as I have yet to play Liu Bei but multiple people have stated this so afaik its right
Further Edit: Liu Bei also has the “Unification” diplomatic deal. If you’re stronger than another faction and you have good relations, you can ask them to unite/merge with yours. He can do this very early in the game as well, whereas other lords would need to vassalize first then annex, or confederate, requiring higher faction ranks.
so it seems the reason you can't confed with him would be because you aren't stronger and/or you don't have good relations with them
That's the problem though. Around turn 90 I was around 6 stacks in army size and 50k in wealth. Liu Biao lost most of his territory and had 1 city left and was close to losing it to Yuan Shu at that point. Even with all this and 150 points in diplomacy he refuse to accept unification. I was already steam rolling across most factions at that point with the only reason for not expanding was my corruption level was hitting nearly 60%
You can also try a unify or else we declare war mandate. But then they'll hate you. And so will everyone else. You'll be an evil tyrant to everyone then. Good stuff...
Like I said, a unification worked for me with a faction that was totally neutral to me but just shared a border and was out of military. We weren't at war, I didn't threaten him, he didn't think highly of me...doesn't seem to make any sense. That's the only non-story-mission unification I've pulled off.
I didn't I think its broken until during my campaign as Cao Cao I saw that Liu Bei unified with Kong Rong, Liu Biao Liu Zhang and Liu Dai within 80 turns. Meanwhile I can't unify with anyone except Tao Qian which is completely scripted.
Unify is the Liu Bei's version of confederation. They literally call it confederation during the faction selection.
Also I do meet the requirements you're describing.
Me - 20 Cities, 6 full elite armies, steam rolling half of China
Liu Bao - 1 city and its currently undersiege, no armies left, wealth - poor, food - very poor, I'm 150 relation with on top of being close friend with him.
What happen when I try to unify? -34 never.
You can select "propose unification" in the diplomacy screen, but 99% of the time the AI will refuse to do so for obvious reasons. But a few times I got it to work, but it seemed really inconsistent. Like with one faction I'd just destroyed all their armies and it let me unify with them. But then some other faction said ok to unification even though they were plenty strong.
I think maybe it's meant to be like annexing your vassals but without the global diplomacy hit.