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

Top left: United Kingdom, United States, France, Prussia (for Germany).
Top right: Russia, Denmark, Italy, Portugal.
Bottom: Norway and Sweden (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 MunicipalityComment on the German flag:

FOTW says this was a slightly different version of the flag with a German flag which looks like Flagge Preußen (1892-1918).png. The German flag was removed and blanked out during WWI after China declared war on the German Empire
Flag of the Shanghai International Settlement pre-WWI.svg
Ericmetro and others