Its entirely possible the shackles were meant to be a visual metaphor for psychological and emotional bonds--although that strikes me as a tad subtle and sophisticated for a 90s superhero comic cover. Regardless of the intent though, the other elements of the image give it a sexual subtext whether they meant it to have one or not. lol.
Exactly. Even if it wasn't their intent, the image implies sexual/romantic love--so it confuses and undermines the message they are trying to send.
Tamara would certainly have been appropriate since she was a recurring supporting player in the book around this time anyway (as Tiger Shark's lover). They could also have used Carrie Alexander, who was at least a love interest (and also appearing in the book at the time). Or even Phoebe Marrs, for that matter...