Flagging

I just had a chance to read Ed McLaughlin's report of 487's troubles. What was more troubling than the apparition and the rod problem was the comment: "Meanwhile, Brakeman David walked the prescribed one-half mile to place a makeshift red flag, his personal bandana, in order to protect the rear of the train. He knew the 497 was headed their way and would need a warning. It was proper operating procedure.."
Proper operating procedure? I think every railroad's Rule 99 is pretty much the same: The engineer immediately whistles out the flag and the flagman walks back the prescribed distance, lays two torpedoes down on the right hand rail, then walks back 1/2 the distance and waits to flag an oncoming train. Every train is to have a flagging kit which includes a red flag, six fusees and ten torpedos. The train crew is responsible to see that they have all the proper equipment before leaving the terminal. And did David stand by to flag the relief engine he knew was coming until recalled by his engineer? Doesn't sound like it when it said Bob was glad to see the flag as he didn't know where the train was. If the rules were being followed, Bob shouldn't have to worry about anything--David should have been flagging plenty of distance from the train and the torpedoes should have provided warning even sooner.
I hope this description was poetic license and not something an FRA man would write up as a serious violation. A serious violation that can remove crew from service and cost the individuals and the railroad money in hefty fines.