May not understand all counting tasks (social counter?)
The child may not know all the number words.
The child may not be able to coordinate number words with items.
The child may not have the organisational skills
Eva is an one example of an emergent counter.
When asked, "Give me 7 counters" she grabbed a collection of counters and handed them over without attempting to count them. When she was then asked to count the counters she attempted to count them in ones. She could coordinate the number words with the counters but missed out some counters. When this task was micro-adjusted to counting items in a row, Eva successfully counted the counters.