That seems to be exactly the reason in Germany. The federal government has no say regarding public gatherings or schools. They have given out recommendations, some have followed, others have not. There's no repercussion for cities not following the government's decision.
You can hide behind "I lack the legal authority" or you can act. This is one of the rare occasions that absolutely do call for the old "ask for forgiveness" mentality. Nobody in the lower tiers would complain about central government to take a very difficult decision off their plate. (some people will complain, those who still think they can just pretend that the epidemic does not happen, but they will complain anyways)
The difference is that, in China, if you don't comply the state security detains you and you get sentenced to re-education camp at best.
In other places there are no real consequences for you, even if people die. But there are legal and economic consequences if you shut down without top cover. That is why the government and legislative paralysis is so damaging -- with no safety net, people will prefer the unknown loss over the certain loss.
