Is this supposed to make sense? You actually think Bush is trying to appoint his successor without an election?
You are crazy, son.
Brown took over FEMA in 2003 with little experience in emergency management. He joined the agency in 2001 as legal counsel to his friend, then-FEMA director Joe Allbaugh, who was Bush's 2000 campaign manager. When Allbaugh left FEMA in 2003 Brown assumed the top job.
http://www.cnn.com/2005/US/11/03/brown.fema.emails/