This is a bug that occurs when the right conditions are present. Simon may never appear at the Judges shack to recruit the judge, and instead is stuck at BADFL.
I accepted simultaneously the quest to recruit the Judge (I forget the quest name), and the CPD quest from Leoni (I might have her name wrong) to clear out the BADFL to set up the new HQ. I first cleared out the BADFL, and then made my way up to the Judge's shack. No sign of Simon. After waiting something like a half hour... and 6 different save reloads... I went back to the police department near the Castle. Simon wasn't there. I went to the BADFL, and Simon was walking around.
When I went up to talk with Simon, he told me something along the lines of "well, this should be the Judge's shack, let's not try to look too threatening" (the normal dialogue of standing outside of the shack). Except, we were standing in the middle of the BADFL office.
Not wanting to find out what happens when you try talking with another NPC (the Judge) in a different zone, I told Simon I wasn't ready. I then opened up the PC console ("~") and selected Simon by clicking on him. I left the BADFL, fast traveled to the Judge's shack, and Simon still wasn't there. I reopened the console, and typed "movetoplayer". This successfully moved Simon to me, and talking to him was able to complete the quest as intended.
So, there is a fix/workaround for PC players, but I think this bug would not occur if the two quests were not accepted at the same time, making this one of those deep hidden bugs.
I accepted simultaneously the quest to recruit the Judge (I forget the quest name), and the CPD quest from Leoni (I might have her name wrong) to clear out the BADFL to set up the new HQ. I first cleared out the BADFL, and then made my way up to the Judge's shack. No sign of Simon. After waiting something like a half hour... and 6 different save reloads... I went back to the police department near the Castle. Simon wasn't there. I went to the BADFL, and Simon was walking around.
When I went up to talk with Simon, he told me something along the lines of "well, this should be the Judge's shack, let's not try to look too threatening" (the normal dialogue of standing outside of the shack). Except, we were standing in the middle of the BADFL office.
Not wanting to find out what happens when you try talking with another NPC (the Judge) in a different zone, I told Simon I wasn't ready. I then opened up the PC console ("~") and selected Simon by clicking on him. I left the BADFL, fast traveled to the Judge's shack, and Simon still wasn't there. I reopened the console, and typed "movetoplayer". This successfully moved Simon to me, and talking to him was able to complete the quest as intended.
So, there is a fix/workaround for PC players, but I think this bug would not occur if the two quests were not accepted at the same time, making this one of those deep hidden bugs.
