I think you’ve identified the problem.
40% think we’re opening-up far too early, and the Government/TOC messaging is woeful because ridership is going up, and there’s inadequate deterrent - too few fines for non-mask wearing, too many day trippers etc.
25% think we’re far too slow in opening-up, far too cautious, and the Government/TOC messaging is woeful because ridership is pitifully low and we’re driving people onto the roads etc.
As always, 35% just crack on, going with the flow. I envy such people.
Now: design a communications strategy that leaves the first two groups fully satisfied.
Maybe the messaging is woeful because the messengers are trying to straddle the two horses, but lets be honest: people are in a strop because what they’re hearing/seeing, isn’t what they personally want.
I suggest that balancing a pandemic, a (generally) scared populace, liberty and the urgent need to get the economy going again, is quite difficult.