My guess is that it is a mint medal, struck on the same planchet that would have been used for a coin.
I have seen examples of this ilk struck by the British
Royal Mint, and by the Government Mint of India.
The Indian example came from the period if Indian independence of 1947, and was struck on a copper nickel 2 Annas planchet, and had a map of India on the reverse. There was no indication on either side, of denomination of value.
It may have been a pattern, perhaps struck in relatively large numbers, but I don't think so.