Each team of four came up with their own signaling method, trying to balance how many bits were transmitted with each symbol with how quickly we could encode/decode the message.
Binoculars were not allowed. We were outside, so we didn't know how windy it would be.
I seem to recall on my team, we were sending two bits per symbol. I think it was just a large cardboard box, we colored each of the four flaps visually distinct, then unfolded one of the flaps for each symbol.
I don't recall a single team thinking to re-purpose naval flags.
Duh.