The group that originated the order. County, State, or Federal should bear the responsibility that way they have to balance the costs, the lives, and the impact (positive and negative). What has happened so far is that in most cases the counties and states made the decision, but with the expectation that the feds would provide a backstop to whatever they decided to do, so they could do what they wanted with little to no concern about the repercussions. Now if the states were choosing to do certain things because of recommendations of the feds, then that would color the argument.