I'm not sure I understand the question, but if you are talking about the two figureheads that aren't normally listed even at maximum development and how to get those, then I have an answer.
In part getting those figureheads is based on luck, which is an unseen stat. You can improve your luck by donating at the Round Earth Society (or church or mosque in the pc version). Studying can also improve your luck, but that is slow. If you donate at least 51% of your gold (including any in the bank) you should get a 10 point increase in luck.
Anyway, about the figureheads and this is reported information (not mine). First, luck needs to be high, and it is reported that it needs to be at least 81.
Second, development needs to be above 801 to have a chance of being offered an angel figurehead. Development has to be above 901 to have a chance of being offered the goddess figurehead.
Third, notice that I said a chance for both of those. When you choose "Figurehead" from the menu, your normal option is to choose from the list of figureheads. Sometimes you will get the response, "We have a great selection today" and that is when you will get the option of at least an angel figurehead. If you don't get the "great selection" statement, cancel and choose figurehead again. It can take many "cancel and choose" turns to get the "great selection" statement AND if you want the goddess figurehead it can take a while to get those, even when the economy and industry are above 901 and your luck is at maximum. In short, it takes patience and some luck because you can get the great selection on the first try and be offered the goddess figurehead or you may need to choose figurehead and cancel a lot before you get either of the two that are considered "great selections".
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