I think he has been approved twice by the Senate.
Once as Depty Director and was confirmed in that position by the United States Senate on August 1, 2002.
Then after that . . .
Secondly, in 2003 President George W. Bush announced his intention to nominate Michael D. Brown, deputy director of the Federal Emergency Management Agency (FEMA) to serve as the Under Secretary of Emergency Preparedness and Response in the newly created Department of Homeland Security. If confirmed by the U.S. Senate as Under Secretary for Emergency Preparedness and Response (EP&R), Brown will coordinate federal disaster relief activities on behalf of the President of the United States, including implementation of the Federal Response Plan, which authorizes the response and recovery operations of 26 federal agencies and departments as well as the American Red Cross. The Under Secretary for EP&R will also oversee the National Flood Insurance Program and the U.S. Fire Administration and initiate proactive mitigation activities designed to reduce loss of life and property from all types of hazards.
Not sure what happened with that or how exactly he was elevated to Director.