Michael,
This locomotive was made for use on the 2 ft. field railways used by both the Allies and the Central Powers in World War I. In addition to the 4-6-0 design shown in this photo a 2-6-2T design by Baldwin I believe was common as well.
Baldwin sold a lot of these AMERICAN made locomotives to the Allies. It might have looked a bit odd and un-American - but keep in mind it was made for a specific type of duty - no tender as that was one less thing to derail on the less than sturdy at times trackage. I would not want to have to re-rail a tender truck with the German artillery shooting at me, thus the really simple design of the locomotive.