Syndicate won't spawn Fortification in Wharf

Basically what the title says - I haven't been able to get Fortification (or Transportation) to spawn in the Wharf map, and the safehouses are definitely not ready to run.

It's happened twice. At first, I was willing to believe I had just misread or misinterpreted my board, but I confirmed the second time it happened.

Reference number is 3,311,152,191