The will to create is the fountainhead of the existence of this universe and everything existing in this world.
The will to command is that will which promulgates the dos and don’ts of God’s rules and laws. In other words it is the will that is the commandment and the laws by itself.
The language of the verses of the Qura’n tell us that both the meanings (of the divine Will) have a great vastness when the will is connected with the creation and origin and its manifestation, and its use is rare when commands and laws are promulgated. It seems that the manifestation plays a greater part in the origin of the will.