Because make is for managing dependencies, which it tracks by files, as soon as you need to do something which doesnt leave files around, such as start a new service, you then need to plug this hole, by using "touch" and leaving files around, which this example doesnt do so it may actually leave the system inconsistent and make the makefile do things it shouldnt, thus causing errors difficult to diagnose. But then you run into the problem of making make have functions of a service manager, which it isnt, and you will most likely fail doing that.

Use Make when you need to track dependencies based on files, such as for build systems whose output is files, and bash/other script for managing a hosts services which are/may be required for the build system.