The seal of Shanghai Municipal Council, Shanghai International SettlementThe flags are:

Top left: United Kingdom, United States, France (The white space replaces the flag of Prussia).
Top right: Russia, Denmark, Italy (Kingdom of), Portugal (Kingdom of).
Bottom: Sweden-Norway (United Kingdoms of) (vertical and upside down), Austria, Spain, Netherlands (upside down).The text is:

工部局 (Municipal Council)
Omnia Juncta In Uno (All Joined in One)
Shanghai Municipality
This file was derived from: Flag of the Shanghai International Settlement.svg
Ericmetro, Great Brightstar