OK, for the record, these type of seals--bulla seals--go back to the Middle Ages.
Bulla comes from Papal Bull, something you didn't want to be the subject of.
Goods in bales (cloth, uniforms, etc.) were sealed with this type of seal, or the folding 2-part seal. Cloth seals are always the folding 2 part kind.
MOST seals we see here on T-net What is it are meter seals... a fairly recent type of bulla seal that uses a wire instead of a cord.
Why a wire, and what's the advantage? Seals that are going to be in one place for a longe time, outside, need something that will last longer than linen thread. Electric meters, railroad cars... that kinda thing.
Back to our What is it? Military camp site. Bale goods, or electric meter? My guess is... bale seal.