I've been thinking about how Shadoweh presented the revised arrangement, and I've realized that ultimately, if the people of those islands vote her in as an advisor (which is basically what her position would amount to now), then that is their right to do so. The land still belongs to Bhava-Agra, but she's free to suggest improvements as she likes, and every such improvement that the celestials agree with is a manner in which they wished to change their lives as well as another feather in her cap, so everyone benefits. The one thing I did not want was "improvements" forced upon these people, and I am rather satisfied at this point that this is not a concern.
Fake Edit: Possibly. Let me read it on break. I think she uses "our provinces" in the sense that she considers them hers at the moment, though.