2 meters for 1 structure
I'll take a crack at this but the NEC article that would deal with this is 230, Services, which I don't find very clear.  It goes without saying that unless you're prepared to literally fight city hall, the inspector's interpretation is all that really matters.  

If you look at the NEC definition of a Building in Article 100:  


  Building. A structure that stands alone or that is cut off
  from adjoining structures by fire walls with all openings
  therein protected by approved fire doors.


Note that adjoining structures are considered separate buildings only if they are separated by fire walls.  I guess they are considering the new setup to be adjoining structures.  

Looking at the photo, I would think each of those meter pans are fed by underground service laterals to the same utility transformer.  

Now look at 


  230.2 Number of Services. A building or other structure
  served shall be supplied by only one service unless permitted
  in 230.2(A) through (D). 


(The exceptions (A) through (D) are stuff that probably wouldn't apply.) 

You could conclude that three services - three sets of wires serving three separate meters and main disconnects - require that the three spaces be separate buildings;  and per the definiton above, these adjacent spaces are all one building unless they are separate by a fire wall.