Why Aren't Malls, Movie Theaters And Gyms Reopening For Phase 4?

We all learned yesterday that with the start of phase 4 of reopening in New York, malls, movie theaters, gyms and outdoor theme parks will not be included in that reopening. I think it's safe to say that we all thought that these businesses would be allowed to open but for some reason we were all incorrect. How did that happen? Were we all mislead into thinking this? Did we all assume incorrectly?

The industries that are included in Phase 4 are "low-risk outdoor arts and entertainment" and also "low-risk indoor arts and entertainment". Since I can't seem to find any reason given for all of the mentioned businesses to not open, I'm going to assume that they aren't considered "low-risk"? As of right now, the businesses that have been allowed to reopen, have been given strict guidelines to follow. I guess that with malls, movie theaters, gyms or even outdoor theme parks the decision makers feel that these businesses would not be able to follow the guidelines? Again, I'm guessing because like I said, I can't seem to find an actual reason given for them to not reopen.

If you have heard a reason then please share it with me because right now, I'm in the dark with all of this and I don't think I'm the only one.