Queen Cells
When we look at queen cells on a frame we might imagine that we can select which is the best to choose by visual inspection.
Scientific Beekeeping
The Quality of Honey Bee Queens from Queen Cells Incubated at Different Temperatures
Male Reproductive Anatomy
Mating in the Honey Bee
Femle Reproductive Anatomy
In this image we can suspect supersedure cells (please note the spelling of supersedure, no c). The cells are not on the periphery. They are made by extending a cell which started as a worker cell. These cells are made when the bees sense there is something wrong with the queen and they decide to replace her. There are a lot of empty cells and of those that are occupied some have drone pupae in them. In this instance this is a planned supersedure but the bees have left it rather late. (e.g. the queen becoming a drone layer).
Dave Stokes
One cannot say for sure what situation these bees have found themselves in however you can deduce from the photo was is probably going on. Beekeepers need to learn pattern recognition skills
In this photo we can see a number of queen cells on the centre face of the frame. If we look carefully (you can enlarge the photo) you can see quite young larvae. The queen has been lost recently. My money would be on a "beekeeper incident". We can see 9 emergency queen cells. The worker bees have realised she is no longer there spreading her pheromones arounf the hive and they are doing everything in their power to replace her.
In this last image we have swarm cells. We assess the whole picture . This frame is solid with brood. We know this because they are on the edge of the frame.

This queen clearly does not need superseding and if we can find eggs on another frame this would clinch it.

We would need to know the whole story but if there were seven or eight frames filled like this then we could understand that the queens pheromones could be very dilute towards the frame edges.