My guess is that they're of German make. The bases of the prone soldiers remind me of the style of makers like Spennkuch. From the flag, it looks like they depict Russian infantry. I would also guess that they were made between 1900 and 1914.
They remind me a little of some of the figures in the collection posted by the gentleman who lives in Tokyo, whose name escapes me at the moment. The collection he posted comprises toy soldiers from several different makers. Some of the toy soldiers in his collection have similar bases.
Prost!
Brad