The Paqu were an ethnic minority on Bajor whose territory bordered that of the rival Navot. As a faction, they avoided contact with outsiders.
Varis Sul became the default Paqu leader at age fifteen when her parents were killed by the Cardassians. (DS9: "The Storyteller")
It was not stated whether the Paqu and Navot were nation-states, as they were simply referred to as "factions."