You are right that absent context, this does not fully define a relation, just like saying $f(x)=x^2$ does not really define a function (until I tell you what the domain, and possibly also what the codomain, are).
Basically, given sets $X$ and $Y$, a relation from $X$ to $Y$ is a subset $R$ of $X\times Y$, $R\subseteq X\times Y$; that is, $R$ is a set of ordered pairs with first coordinate in $X$ and second coordinate in $Y$. We think of $R$ as giving the relation that relates the element $a\in X$ to the element $b\in Y$ if and only if the pair $(a,b)$ is an element of $R$.
Just as with functions, to fully describe a relation we need to specify $X$, $Y$, and $R$ (with functions, you want to specify the domain $X$, the codomain $Y$, and the rule for assigning elements of $X$ to elements of $Y$, the “function”). Often because of context we can “get away” with not specifying $X$ and $Y$ explicitly. For example, in Calculus I we agree that our functions will always be defined from a subset of $\mathbb{R}$ to $\mathbb{R}$. We even agree that functions given by formulas are defined from their natural domain to $\mathbb{R}$, so that we can “get away” with just giving the formula $f(x) = x^2$ and we “know” that this is a function from $\mathbb{R}$ to $\mathbb{R}$ without saying the latter.
Similarly, from context or convention we may agree that if we don’t explicitly say what the domain and codomain of the relation are, then we will take them to be some specific set; or we will take them to be “the smallest sets for which the relation $R$ makes sense”, that is, take $X$ to be the set $\{a\mid \text{there is a }b\text{ such that }(a,b)\in R\}$, and take $Y$ to be the set $\{b \mid \text{there is an }a\text{ such that }(a,b)\in R\}$. This usually needs to be agreed on explicitly, though.