I mean, you can divide the counters by the range 2 - 38.
I only managed to find out that 38 ÷ 2 = 19.
And 38 ÷ 19 = 2.
It says that there are more than 10 counters in each bag.
So 2 bags is the most liable option.
There are 2 bags and 19 counters in each bag.