When the original 1982 Joe figures were released, they were a stew of shared and reused pieces, including the heads: Breaker, Clutch, and Rock N Roll; Flash, Hawk, Short-Fuze, and Steeler; Grunt, Grand Slam, and Zap; only Scarlett, Snake-Eyes, and Stalker got solo-use molds on the good guys' side.
However, when the line was in development, the plan was that all the figures would have their own unique heads. This stayed the plan for long enough that all 13 of those heads reached the sculpting stage, meaning Hasbro had paid for the work. And once a company pays for something, it wants to find a way to use it; thus, they began looking for ways to recycle those sculpts, and so many of the 83/84 figures were made with the previously unseen heads.
Why does Doc wear glasses when his original design didn't have any? Because that head was supposed to be Short-Fuze. Why did Thunder, who came out in 1984, have a sculpt from 1981? Because he was supposed to be someone else back then.
Jim Toatley was the one who sculpted all those first-year figures, but he died in 1986, so no hoping for more info from him. But if you look at the first few years of toys, it's not hard to pick out other figures that share his style - Airborne, Ace, Blowtorch, Ripcord, etc. - and may have started out as one of the 1982 characters.
Not all the sculpts got reused, however. Apparently there's a Zap (with a mustache) that was never used for anyone else. And look at this Breaker:
Like we said above, the Breaker that was released used the same head as Clutch and Rock N Roll, meaning he had a full beard:
So where did this variant come from? Best guess is Hasbro was considering doing a third run of the 013 Joes (first run, straight arms; second run, swivel arms) with the heads they were intended to have, started some test production on that, then changed their minds. So this carded Breaker, with a super-rare head, would have been from that short run.
But considering the only two we know of who made is this far are Breaker and Zap, the two who had the most differences between the toy and the comic appearances, it's entirely possible the idea was to just redo them so they'd finally look "right" to kids.