I can think of several reasons:
I thnk we tend to project a modern collecting mentality into a throw-away promo production of 100 years ago. In other words, a possible reason there are fewer of any given variety of a card is that they didn't really care about making even numbers at the outset.
Other cards were chase cards, and not necessarily that we know of at this time.
Other cards were just some printer's idea of a good move, like some of the midstream team changes, probably. Could even be as simple as running low on one color and deciding not to do as much of that color to fill out the print job.
Some cards are cheap efforts to reuse whatever art was laying around while labeling it as new. The silhouette PC Back Exhibits come to mind.
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