Actually, given the specific circumstances, I'm not sure that your analysis is correct, IANAL, but obtaining a permit and using it under false pretenses despite performing the activity required by the permit might be illegal.
They probably don't care if you don't make the film (sometimes film-making fails), but certainly you wouldn't be allowed to sell shoes under this permit.
Bureaucracies arise because people take advantage -- rules are usually descriptive of what people did to cause problems in previous iterations.
