Both is possible, depending what is required. Normaly to get percentage mass to mass , what means 2 g NaCl and 98 g water is 2% w.w
But if you want to have a concentration 2 g/l then you put 0,2 g NaCl in a measured flask and fill up to 100 ml.
2 g in 100 ml means 2 g in 102 g solution and it is 1,96 %
Now the question is do you mean Mixing or dilution.
Mixing 1 to 1 means 1 part substance and 1 part solvent, what is a dilution ratio 1:2, because the volume is double.
1 to 5 is a dilution ratio 1 part Substance and 4 part solvent.