This is a photo of an exhibit hall at the 1909 World's Fair held in Seattle, the Alaska Yukon Pacific Exposition. It appears to have been taken before the fair opened, when only Frank Nowell was allowed to take photographs on the grounds. The image was likely licensed from Frank Nowell. Otto apparently printed it on contract for Central News Co.
There are two other images numbered 17:
Reuse of image numbers and different image series make it difficult to know how many images Otto published.