Goodell doesn't make the schedule. There's a whole team of analysts with a computer simulation that generates workable schedules based upon venue availability and other factors. After weeks worth of simulations they narrow the choices down to a couple of possibilities. Even at that point they have a favorite and it is then blessed by Goodell after seeing it for the first time. There's a whole documentary covering the entire process that I am sure you can find via Google.

Goodell signs the paychecks of everyone involved with making the schedule. Venue availability can occasionally be an issue but like goodell’s basement, it may be locked down a few weekends when loud music is playing, but if he gets in a bad mood capacity quickly opens up. With bye weeks, home and road games, etc there would be thousands of possibilities and ultimately the guy writing the checks can get whatever result he wants.