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The flag graphics comes in two files: shield_TAG.bmp and flag_TAG.bmp.
The TAG is the country tag for the country in question (e.g. Germany is GER, the UK is ENG).
These files goes into the flags and shields folder under the GFX\map folder of your HoI install.
To replace existing graphics:
1. backup the old files (optional, but nice if it doesn't work out...)
2. replace the old flag file with the new file and the od shield file with the new file.