In 1999, a Duma commission for national security, composed largely of subordinates of the then-MVD Minister Vladimir Rushailo, developed a very interesting document, "National Security: A concept of necessary reforms of the Russian Security Services." The document, which became public knowledge in 2000, recognizes that the security services are ineffective and that different agencies perform the same task, either replicating the work or hindering each other. The rather ambitious document recommends:

"... to unify the Russian security services on the basis of the MVD, which has been subject to the least amount of 'reform' in recent years and as a result not only preserved but substantially raised its operational capabilities. The quality of the cadres of this new security service would be much improved since the merger would bring in the best specialists and whole divisions from other security services, without altering their field of endeavor. Direct subordination of the unified security service to the chairman of the Cabinet of Ministers would preclude the possibility of extraneous work such as security services gathering kompromat on one another."

This brave effort was nothing less than an attempt by the MVD to claim leadership among the security services. It is important to note that the service would be subordinate to the prime minister; hence the document was an oblique offer to Putin who occupied that position at the time. Once elected president, Putin quickly dismissed such plans and a year later replaced Rushailo with Gryzlov. The FSB response can be seen in the comments of Vladimir Kozlov, deputy director of the FSB's Second Department (for defending the constitutional order and fighting terrorism). Kozlov said that, without "untraditional" methods and operations the FSB cannot carry out its mission of providing security for the citizens, the society, and the state. Kozlov did not specify what "untraditional methods" the FSB employs, but did make it clear that the agency would not cede leadership to any other security service.