I've also tried subtracting two similar masses (12.91-12.81)
Good try, but I am afraid you are out of luck with these data.
Generally speaking one should expect the smallest difference to be a mass of a single clip. However, looks to me like that's not the case. If one clip weight is 12.91-12.81=0.10g, envelope F contains (7.21-3.44)/0.10≈38 clips, and you were told they contain at most 26. This makes me think envelopes B and D contain the same number of clips, and the difference is just an experimental error.
Best approach would call for using least squares method, which is probably way above what you are expected to use. What is the lowest mass difference (ignoring this unlucky 0.10g)? Try to assume this lowest difference is a single clip and see how many clips would other envelopes contain. If none of these numbers look reasonable (they should be close to integers and in the given range), assume it was two clips - and repeat...