Baggage allowance - wording

[foggy]

Let me start off by saying english is not my first language so maybe that is why I'm hella confused.

Adults, young adults and children: 2 bags at 23kg (51lbs)

Does this mean 2 bags at 23kg each or max 2 bags, totalling 23kg?
This is for JAL flight, cabin class PE

 

[trooper]

2 bags, each up to 23kg...for each passenger.

 

[Dr Ralph]

2 x 23 kg bags. That is, 2 bags each person with a maximum of 23 kgs in each of those 2 bags.

 

[GoldCanyon340]

That text could certainly be worded better.