Every President does recess appts . The Dems went nuts after John Bolton was recessed into Ambassador of UN during Bush term. That was after his nomination was held up by the Dems.
In this case the President isn't even waiting for the Senate to do their proper advise and consent role.He is going under the assuption that the Republican would hold the appointment up .
Add to this the preponderance of appointing "czars " to fill the function as officers of the Executive Dept (cabinet members ) without going through the normal confirmation process.
Indeed this is an accountablity issue. This brings an "Imperial Presidency" to a whole new level of abuse.