Imagine an uncontrolled intersection. The Robotaxi is approaching from one direction. In the opposite direction is a cyclist who intends to turn left across the Robotaxi. There is also a pedestrian that may or may not cross the street, and another vehicle about to cross in front of the Robotaxi from the other direction. There are a huge number of ways this scenario can play out, and any decision made by one agent can affect the behaviors of all the others, compounding it's complexity. Humans can game out these situations intuitively, but current AI cannot read deep enough into the matrix to deal with these situations quickly and reliably.

I think was is meant is: in case you have a few people and AVs in an interaction, predict who's going to do what in order to best anticipate the overall outcome. Not sure humans can do that outside of conversation and norms and rules.