Board Thread:Skyrim/@comment-118.97.212.184-20130714094111/@comment-6881629-20130714111309

Copy/paste from the wiki page -

"Waiting 24 hrs in the Shrine of Talos will spawn a third guard to offer dialogue and complete the quest. This method might not work properly sometimes, causing the 3rd guard to stop the conversation about the framing midway and not triggering the next quest,  No One Escapes Cidhna Mine . In that case, exiting the Shrine of Talos and waiting 8–10 hours outside and then re-entering the Shrine will trigger the conversation with the guard and the subsequent quest correctly"