These bags of figures and accessories were a Target exclusive in 2003, but I don't know who actually made them. They were made to go with plastic sand castle molds. The figures are about 45mm. The dragon is about 65mm. The dragon's arms move. I have seen very similar knights & catapults put out by Stevens International. There are some fopish court figures.
This recent product of Steven International looks very similar. Picture is from an ebay auction.