The consent agreement required EA to support the "open standards", which included CCS and Chademo, but not Tesla. EA could have put Tesla connectors on, but didn't because they wanted to encourage people to buy VW EVs, not Tesla's. They were forced to spend the money, it wasn't strictly a "business decision" at the time. As you know, the stations they ended up rolling out typically had all CCS connectors and one Chademo.
If it were strictly a business decision, then yes, they should have put in Tesla connectors. Keep in mind also back then a lot of people thought Tesla was still going to get crushed by the legacy automakers.
I don't know if EA can actually make money selling power at those rates. I think a lot of their customers are getting "free" charging for a year with the car purchase, funded by the companies selling the cars, so EA maybe gets a fat check up front while providing in some cases sub-optimal infrastructure.
RT