My understanding of the way elders are appointed is that the elders discuss the brothers who may qualify with the circuit overseer. The Circuit Overseer makes the recommendation to the branch and he can block an appointment if he doesn't feel someone should be appointed. There are also occasions when a body is told that someone will not be appointed because the branch has issued instructions to that effect. So although the elders can express a point of view they do not have the final say.
appointed men coming from another congregation are appointed by the new congregation but this still has to be approved by the branch.
This would imply that the congregation may shortlist candidates but the decision rests initially with the CO and then ultimately with the branch. After all if the congregation makes a recommendation that is not approved of by the CO or the Branch the person will not be appointed.
The main issue is that the appointment is supposed to be directed by the Holy Spirit. How many duds have to be appointed before people start to realise that the Holy spirit is asleep at the wheel?