 It can be traced back to 1823 when it was created as a signal flag, but not intended as a civil jack.A book issued to British consuls in 1855 states that the white bordered Union Flag is to be hoisted for a pilot.Although there was some ambiguity regarding the legality of it being flown for any other purpose on civilian vessels, its use as an ensign or jack was established well in advance of the 1864 Act that designated the Red Ensign for merchant shipping.