Exactly they needed all the room bot be fully fitting with lighting, hvac and grow systems so that the inspectors could asses if there were any blind spots. No one was going to give them a license for 100% empty rooms as they would have to be re-inspected once the light systems were put in.
Besides Bill no longer has security clearance and since the JR is on hold he's not getting it back since he was in JR to get it back.