It may not be sloppy design work. It may be part of a set with different coats of arms. Start tracing back the family trees of most of the royal houses of most of the countries of Europe in the late 19th century. It is surprising how many of them trace back to Victoria, or have Victoria somewhere in the tree. Most of them were children, grandchildren, nieces, nephews, cousins, or married to one of her decendants. so I could see a set of counters with Victoria on one side and the coat of arms of the countries ruled by members of her "family". I see the rulers of Belgium, Netherlands, Norway, Spain, Denmark, Sweden, United Kingdom, Russia, German Empire, Greece, Prussia, and several other German States.