From the rules example of setup:
"Example: Let assume that the highest Territory tokens are 16, 14 and 13. In a 4 player game, the 2 Civbots will start in territories 16 and 14. If territory 14 is occupied, the Civbots will start in territories 16 and 13.
If bots first, how can 14 be occupied?
Good question. This have me confused, too.