It's up to the business owners/managers to work out how they can "social distance". You really can't expect the Government to micro manage every single business. All they can do is produce guidelines, which is what they've done.
To a large extent, I agree with this. But... the government just puts this stuff out into a vacuum and that doesn't help.
For example, the public transport thing: if you can, go to work and please avoid public transport. That's a bit vague and unhelpful for people who are trying to work out what's best re getting to work.
Government could say they'll be bringing public transport up to previous levels in an effort to reduce crowding or laying on extra or, for communities where, for example, there's local factories and manufacturers, supporting businesses with some tax breaks or whatever if they lay on transport for workers to supplement. Or guaranteeing that parking restrictions will be lifted. ie, there are things they can do that have both a practical and emotional impact on individuals considering returning to work.
Or, instead of telling people they should go back to work if they can, government could specifically make announcements aimed at businesses, "we want you to reopen when you can. Obviously, social distancing needs to be enforced and we'd encourage you to do x, y, z to support your workers, suppliers and customers." Provide guidelines for how to get workers back that are visible to the workers.
Yes, to a certain extent, this is a PR exercise, but that's not to say it isn't useful.
Also, I think that people, understandably, feel that government is passing the responsibility to them and not providing assistance. And that's the problem.