Or if what is done does not have the desired positive effect.
I get the impression that San Francisco has a pretty tame testing program mostly centered around hospitals but it is enough to know how the epidemic is progressing, and of course to handle admissions correctly. The marginal benefit of more testing is uncertain if the population is already behaving smartly.
Testing only at hospital means we are only identifying symptomatic and worry well individuals. While this is a good if we're trying to reduce unnecessary tests but bad in that we believe we have low infected rate... leading to taking longer for things to go back to normal.