Or with "saying the quiet parts loud", where people who aren't as good at dog whistling drift into being more explicit. Or people who are explicit get pushed into saying things where the racial connection is more easily denied. The Trump administration's Muslim ban is good example of that. They started out advocating for a ban with strong religious and racial components. When the public and the courts said no, they iterated to something less blatant. They will keep rinsing and repeating until something gets through.
To contrast, I used to have a couple of friends who would use the term "friend" as a stand in for n* when talking about people in public. I figured it out from being around them and hearing how they stressed it differently than normal, but any random stranger wouldn't have picked up on it.
I see enough references to the phrase (like: "everyone knows this is a dog-whistle for xyz") that I started to wonder if that phrase wasn't in itself, in certain contexts, a form of virtue-signaling itself. Maybe I was wrong.
Q: How is it that all the anti-racists know all the code-words that make up a dog whistle for racists? Isn't it supposed to be, by definition, unhearable?