I disagree, there's not a whole lot of information on the subject but I think the issuer of the notgeld was the Chamber of Commerce of Djibouti (the city) itself and not the country as a whole?
A chamber of commerce is usually private and not a government agency, so the currency issued by them is privately issued, so Djibouti as the issuer (the city not the country) would make sense as it wouldn't be issued by the French Djibouti government.
There is probably a reason why numista has labelled them seperately if the referee for Djibouti can share their views.