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I am an attorney with 30 years of experience, including extensive experience advising Boards and Commissions. I hope to provide you information that will help you in resolving your question.
This type of issue would not normally be addressed by Rules of Order. Robert's Rules of Order (and modern equivalents) address the procedures for how to conduct meetings.
The issue that you are describing is more appropriately addressed by the by-laws of the organization. That is where you should look to see whether the Board is granted the authority to appoint members to fill a vacancy. Normally, that is not the case because the Board of Directors
are supposed to be subordinate servants of the entire membership. The norm is to have a special election to fill the position. But each organizations by-laws will differ on this.
Here are links to Robert's Rules, which may be helpful on other issues. See Rule 50 pertaining to the Board of Directors (also referred to Board of Managers):
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