Hint #2: water
Bonus hint: used by, but not of countries (this is what I had to get my head round)
My guess is semaphore signals for the numerals... Hence "Japan" and "white dot on blue" get repeated a few times as 1 and 2.
@ewanmac started
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Hint #2: water
Bonus hint: used by, but not of countries (this is what I had to get my head round)