Though the government of Bajor was often referred to as "provisional", in what sense was it meant?
Was it that people were serving provisionally until elections were held? But elections were held at least by the third season of DS9, supposedly more than three years after the Occupation! Surely that's long enough to establish a real government.
Was it provisional in some other sense - perhaps governing only Bajor and not all off-world Bajorans? What was the relationship between Bajoran refugees and their government?
Was it provisional because it had no official constitution yet? But we never heard of any constitution of the Bajoran government, and yet it was all-but-accepted into the Federation (with only signatures lacking on paperwork)!