No Bux, this makes perfect sense, you just need to take off your Chayka glasses. The guy's a snake or incompetent, or maybe a bit of both (honestly, I think both but that's a different discussion)
Putting the pieces together, I think something like this happened:
1) Chayka reads what's written about the combine. It's something like, "teams shall not put draft-eligible players through physicals prior to the combine." As everyone says, hockey is an old boys club so all the other GMs know what this means. Chayka sees an opportunity.
2) Chayka says, "Oooh I'll just email their clubs for information about the players' physical abilities but not put them through a physical myself! I'll get around the language that way." It doesn't have to be exactly this but the idea is he's trying to use the loopholes in the policy to gain an unfair advantage for the team with regards to scouting players. Unfair is the key word.
3) Chayka knows he's trying to do something underhanded so instead of asking someone from the league whether this sort of action is even allowed, he just does it anyway, worst case he figures he gets a slap on the wrist.
4) Other teams in the league find out about what we did, Chayka did all his information requests by email so it wasn't that hard. The complaints come in two forms: 1) complaining Chayka's behavior is unethical and 2) asking that if Chayka's behavior is allowed, then what else is allowed? In other words some teams are asking the league, 'ok what constitutes a physical can I send my jet to fly the players to play pick up basketball is that ok? While we're at it maybe we can get a post-game meal at the most expensive caviar restaurant in town?' that sort of thing
5) Bettman thinks about it for half a second and thinks, 'no f***ing way the idea is that prior to the combine you're only allowed publicly available information, scouts at games and that's it'
6) Anyway Bettman's team looks into it, it's obvious what Chayka was doing. The way Bettman's statement is written, he can't prove that Chayka knowingly violated the policy (as opposed to gray area), but Chayka was grossly negligent meaning any half-brained idiot would send the league a quick email for clarification on the policy before doing embarking on an effort like this.
Chayka didn't. So we should be fined