I believe for an intentional community to form starting with rules is the cart before the horse. It is a contract, you do with this and the community provides you with this, that sort of thing. It is a fine for a landlord and tenant arrangement and that is an intentional community but maybe not the sort that is meant by this forum.
For my money, values are the first conversation, the entry point of dialogue, does a group of people share a common set of values and are they willing, committed to living out those values and hold each other accountable. The values might inform a community mission statement and values would also inform the goals of the community and with the goals come the rules. Difference between contract and covenant. For instance a community might say they commonly value building relationships with each other, hospitality to the surrounding community, and food sustainability for their living community. So they set goals of eating three meals a week together (relationships), opening their community to their family and friends and neighbors for three hours on the weekend where they host , feed anyone who comes, (hospitality)and grow food together, as well as compost, and learn food preservation (food sustainability). The rules might then translate into everyone cooks a meal in turn for the community (relationships), everyone takes one weekend a month to cook the outside community meal (hospitality), and everyone commits 8 hours a week to the gardening and/or food preservation (food sustainability).
For my money as new people might join the community, the values remain the same - it gives the community an identity but goals and rules can change as need and inspiration arises. I could say more but interest in what others have to say.