It's a good question, I've thought about the meaning of flags for a while.
Think about China's flag. They changed it in 1948, it suddenly became a Communist flag. What does it represent? The people of China or the ruling class? Clearly it's the CCP, because it's the CCP's flag.
Take the UK's flag. It is made up of England, Scotland and Northern Ireland's flags. England's flag is the flag of St George. A dude who almost certainly never went to England, but was chosen by Henry II to go on Crusade, and it's remained as the representation of the King of England. The Scottish St Andrew's flag was used by Scottish Kings. The Northern Irish flag of St Patrick, is actually from the Fitzgerald family.
Essentially both the UK and China have flags that represent the people in power.
What about the US? 50 stars to represent the states, and 13 stripes to represent the 13 original states. Again, the power structures in place.
A flag is literally a piece of cloth that says "fuck you, I'm in charge here".