This is a photo of the 1909 World's Fair held in Seattle, the Alaska Yukon Pacific Exposition. It was taken during construction of the grounds of the Alaska Yukon Pacific Exposition and was probably licensed from Frank Nowell, the official photographer. Otto apparently printed it on contract for Central News Co.
There are two other images numbered 14:
Reuse of image numbers and different image series make it difficult to know how many images Otto published.