I do see some capped honey at the top, and a queen cup.. bees will make lots of those and just as often destroy them.. if you can look into it and see there is an egg or larvae, then it becomes a queen cell...
I am a little confused by what i see in the center of the cells.. at first glance, they looked like giant eggs. Do those cells have nectar in them causing that effect?
No eggs in that box at all? Did you see a queen?
If that was my hive, I would give them a frame of open brood with eggs and young larvae and see what they do with it. If they pull queen cells I would get another queen, OR, if you have the resources from the other hives, give them a couple more frames of capped brood once they start drawing the queen cells and let them requeen themselves.. A purchased queen will be MUCH faster and you do not have to take resources from your other hives that are building up.
A lot depends on if there are eggs, if there is a queen. You dont want them to go to the laying worker stage.