Well, every rule and law in existence, that I can think of, has an assumed intent. That's probably a necessary condition for rules, whether it's a sign in the park or a government regulation or anything else.

If people do not have, to some degree at least, a shared intent (e.g. let's have a conversation here about topic X, let's have a park to have fun or relax in, etc.) there is probably no set of rules that can specify sufficiently what can and must not be done. If you did manage to craft such a sufficiently detailed set of rules, it would be too large for people to read and understand.