I disagree. They are ecaxtly right for a staple, and the paper does not show the characterisitc crease that comes from using straigh pins.
I’ve seen it, working in former Brit colonies/dependencies, etc. in past years. Those are staple holes, not straight pin holes.
Ok, that was my first thought. In California older Drivers Licenses were sent out stapled to a piece of paper. When forgers (drinking age) tried to copy them they usually screwed up and had two black dots for the staple but no holes...I was unaware of straight pins maybe by 1964 they got staples? I would like to measure them but would need to know the paper size so if anyone has their BC let us know size !