It's even worse. Each city and county has its own health department (Gesundheitsamt) that can freely decide on their own guidelines. So you have some departments that test nearly everybody and others that will only test when you call 3 different always busy hotlines with a 40°C fever - which btw isn't even an indicator; you can be infected and just have a mild cold.

Bavaria declared a statewide emergency in part to be able to overrule and have a consistent guideline across all health departments.