SFO has published ILS approaches for 28L and 28R. They have NOTAMS indicating that the ILS is available except for certain dates. ATC is 100% in the wrong for prioritizing throughput over safety. At some point their luck will run out. If ATC does not want to make ILS available then they need to communicate that explicitly and not waste everyone's time with a penalty hold.

https://www.youtube.com/watch?v=E4cewwhcL5c

https://www.youtube.com/watch?v=DrRGde5J8mo

https://www.youtube.com/watch?v=C3yKf7NgYv8