I 've dug two of those things in different Baltimore outhouses. Figurines like this are frequently found in Baltimore, most of the diggers attributes this type of thing to CD Kenny. A turn of the century coffe,tea,spice seller who gave away all kinds of figurines like this. Not exactly sure what purpose it served.
I had a passing interest in C.D. Kenny once, he used them in his chain of stores to entice women to shop at his stores. There's a whole gamut of give aways from serving trays to knick knacks - most are marked C.D.Kenny and are from Germany or Austria I think. At the same time the five and dimes and better carnivals carried the same pieces without his name.