RAWALPINDI, Pakistan, Nov. 23—Pakistan declared a national emergency today and charged that Indian forces had seized two villages and some border outposts in East Pakistan.

A spokesman here said that a fresh Indian attack in the Comilla district in East Pakistan had been beaten back during the day and that there was heavy fighting in border areas.

The declaration of national emergency did not specify what measures the Government intended to take. The Government already rules by martial law and has wide powers.

But a spokesman said that the declaration was “an enabling act” that could pave the way for censorship, civilian mobilization and other measures.

He reiterated Pakistani charges some 100,000 men had been deployed against East Pakistan in the last three days.

Reports Loss of 2 Villages

The spokesman said that Indian forces had seized and still held the village of Chuagacha, in the Jessore district about six miles from the Indian frontier, and Atgram in Sylhet district two miles from the border.

He said that shelling from the Indian side had been especially heavy, and that Soviet‐made artillery had shelled the Jessore airport.

Civilian air transportation throughout East Pakistan was discontinued yesterday, and spokesmen said it would remain so indefinitely.

A spokesman for Pakistan's Air Force said a dogfight occurred yesterday afternoon over the Jessore district, involving 8 to 10 British‐designed Gnat jet fighters on the Indian side and three American‐built Saber jets on the Pakistani side.

The spokesman said that two Indian Gnats and two Pakistani Saber jets had been shot down, all of them crashing in Pakistani territory. [In New Delhi, defense officials said that Indian Gnat jet fighters had shot down three of four Pakistani planes that they said had intruded over India.]

The Pakistani spokesman said he did not know whether the enemy's fighters had been marked with the colors of Bangla Desh—Bengal Nation, the insurgents’ name for East Pakistan. But the spokesman said, in any case, “what else could the planes be but Indian?”

Earlier, Pakistan had asserted that 18 enemy tanks had been damaged or destroyed in Pakistani counterattacks. But the spokesman said today that the disabled tanks were all in territory now occupied by Indians.

Pakistan has acknowledged only very light casualties.

A Government spokesman declined a direct reply to questions whether Pakistan considered herself at war with India.

“We have been attacked by India and we are fighting back,” he said.

Asked if Pakistani forces intended to pursue Indian troops back across, the frontier if they could, he replied: “We reserve the right to do that.”

So far, he said, no incidents have been reported anywhere along West Pakistan's border with India, including Kashmir, and the frontier in West Pakistan is still open as usual.

Clearly, the situation seems to remain well short of general war between the two countries.

The spokesman said that the Pakistani President, Gen. Agha Mohammad Yahya Khan, intended to proceed with his plan to bring a national assembly into being on Dec. 27.

The difficulties in East Pakistan have their origins a year ago in the election of the National Assembly, which was to write a constitution to return Pakistan to civilian rule. The Awami League of East Pakistan, running on a platform of regional autonomy for the poorer, more populous East, won a commanding majority. In March, President Yahya postponed the convening of the assembly and the Awami League began protest strikes. The Pakistani Army moved against the disturbances in the East at the end of March, the Awami League was outlawed, and 78 of the league's 167 seats were declared vacant.

At the beginning of November, President Yahya said that 53 of these seats would be filled without contest and that there would be election contests for only 25 seats.

A military spokesman announced that a war briefing for foreign and local newsmen here —today's was the first of its kind—would be held each day for the duration.