Seems to be military mail postcard for Japanese navy, as tonymacg mentioned.
There seems to be many types of military mail postcard for Japanese Navy, some of them having inscription "Issued by Department of Navy" thus could be considered as officially issued, but there's no further clue on the ones without inscription especially for unused. I have found a similar usage on the dedicated Website for Japanese military postal history, which may give you some clue how this postcard was supposed to look like when used;
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