It's a metaphor which means it's not literally a dog whistle.
Dog whistle
Dog whistle is a type of strategy of communication that sends a message that the general population will take a certain meaning from, but a certain group that is "in the know" will take away the secret, intended message. Often involves code words.
Republicans say they want to make civil rights for gays a state issue, which is really just a dog whistle strategy for saying that they will refuse to grant equal rights on a federal level.
A metaphor is a figure of speech that, for rhetorical effect, directly refers to one thing by mentioning another.[1] It may provide (or obscure) clarity or identify hidden similarities between two ideas. Metaphors are often compared to other types of figurative language, such as antithesis, hyperbole, metonymy and simile.[2] One of the most commonly cited examples of a metaphor in English literature comes from the "All the world's a stage" monologue from As You Like It:
All the world's a stage, And all the men and women merely players; They have their exits and their entrances ... —William Shakespeare, As You Like It, 2/7[3]
This quotation expresses a metaphor because the world is not literally a stage. By asserting that the world is a stage, Shakespeare uses points of comparison between the world and a stage to convey an understanding about the mechanics of the world and the behavior of the people within it.
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