I think it is a contract of some sort. I think these are personal seals, each group representing an individual. This might be some sort of guild or religious group where members were identified with a series of random symbols, akin to a social insurance or military service number.

Maybe people took home smaller representations so that in the future they could be identified as having been part of the group. If that is the case, this cannot be deciphered any more than one might decipher a list of phone numbers.