From the rules:
8.1.2 bullet 1 wrote:
• Place friendly Bases whenever possible, including with Cash.
EXCEPTIONS: Government places only 1 Base per Province,
none in Cities; Syndicate if final Propaganda Round uses Cash
to open closed Casinos where possible.
Since this is not the final Propaganda and it is possible to place a new Casino in each of the three spaces, that's what the Syndicate bot does.