The ritual. And the place.
You're correct, and I hadn't thought it out that far. I would wonder about some guy who chose the urinal right next to mine if there were others open with more "privacy".
And, it also seems as if both the place and the ritual as described by the cop and Senator is designed to screen out anyone who is not interested. It requires a signal which must be either actively or passively accepted.
I am sure no one wants to make an unwelcome advance any more than anyone wants to receive one.
Arf