If they were printed in China as some fake ballots are suspected of being, this kind of error is not all that unusual. Mainland Chinese shops do not have the same QC that industry does here, and the poorly paid barely fed people on the line don't watch all that closely and probably didn't know the nefarious purposes their product was intended for, so really thought nothing of layer order. This is my supposition based on discussions I've had with Chinese netizens and Western expats in China over the years.