I don't see how the term "sets" applies to this example. It's been my understanding that the term "sets" was added to allow multiple single pole brekers to be handle tied into one switch. (ROP 4-117, 4-118 and ROC 4-69)
As far as the original question goes, I don't see how this installation is permitted. I only see one service. There may be 4 service entrance conductors supplying 4 separate service enclosures, but I don't think the additional service entrances meet any of the exceptions to section 230.40 permitted by 230.71(A). Exception #2 could be used for the the multiple sets of service entrances, but is not allowed to be used for the purposes of 230.71(A) requirments. I feel its a violation unless someone can show otherwise.
Bryan P. Holland, ECO.
Secretary - IAEI Florida Chapter