This is a simple horizontal ID badge holder that has an area with a grid of small holes designed for mounting decorative pins. I'm a longtime Red Cross volunteer, and pins are common awards to commemorate specific deployments and achievements.
There are two versions with different sized areas for mounting pins.
Note that since many pins have tiny stabilizing protrusions in addition to the main pin stem, they may not lie perfectly flat. You can add small dab of hot glue to each pin to better secure them. It will prevent rotation and help them lie flat. Without glue, I've still found pins are well held, they can just shift around a bit.
The author marked this model as their own original creation.