As the story notes they've missed, by thousands of superchargers, both this and last years previous expansion goals- no reason to think that will change in 2019.
Superchargers cost capital- and Tesla has a LOT of things vying for those dollars right now, including many likely to, unlike more superchargers, actually be profitable.... (Gigafactory 3 and in theory 4, model Y, Roadster 2, eventual pickup truck, etc)
Doubtless they'll add more, M3 volume will give them no choice, but it won't be at nearly the pace they keep suggesting they intend.
They missed their own goals.
I don't know where to put my opinion on that.
They didn't miss an actual promise or shareholder promised objective.
Superchargers are a benefit to Tesla in that they partly are able to sell cars because of them. IMHO Superchargers aren't a necessity but a benefit.
I guess what I'm saying is that IMHO internal goals aren't what I hold companies to. I'm really not sure why Tesla posts sooooo many internal goals. Other companies don't. Unlike Tesla they commonly post revenue goals but not always things like "how many" widgets and details on the widgets.
I do have to say that I LOVE Tesla's transparency and have no recommendation that they should stop.