To build on what other people have said the most important part of a dog whistle is that it has **plausible deniability** and is as ridiculous as possible such as the Pepe frog and etc..
For example: Person A is a racist who is in the know and says a racist dog whistle. This statement is meaningless to everyone who isn’t in the know. Person B is educated on the dog whistle but isn’t racist and states that Person A is being racist, trying to convince the audience.
Person A denies this, and states that Person B is being ridiculous. And it does seem ridiculous if you don’t know what the dog whistle is. The uneducated audience doesn’t get that Person A is spouting racist propaganda. Now the audience thinks that Person B is untrustworthy and Person A gets away with their racist shenanigans.
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