They are fender mounts. A bridge is connected to those mounts, and an L-bracket connects the bridge to the fender.
As for pannier rack, there are fenders that carry lightweight panniers, such as Hebie Wingee. If you want to carry more than 8 kg per side, then you need a real pannier rack. It needs mounts at the bottom and at the top of the seat stays. Usually those under-the-seatstay mounting holes don't work because regular pannier racks are intended to be mounted to eyelets that have the screw holes at the sides of the seatstay. Theoretically you could fabricate custom mounts for those under-the-seatstay holes, though.