It's a combination of voluntary and mandatory. The question is whether the mandatory part overstepped. It's a fair question. Did it do more harm than good in some cases? Did it prevent businesses from being able to adapt to the situation? Like what some ended up doing with moving seating outside, or converting to a different model, etc. But if there's a mandate that "all X must close", you're blocking adaptations and any chance of them figuring out a way to survive.