Two senators have launched a brief invoice with an unusually huge ambition: to cease US legislation from treating individuals who write and publish blockchain software program as in the event that they had been working a shadow funds firm.
The proposal, titled the Blockchain Regulatory Certainty Act of 2026, goals to make clear that “non-controlling” builders and infrastructure suppliers (i.e., those that don’t have the authorized proper or unilateral means to maneuver different individuals’s funds) shouldn’t be swept into the authorized bucket reserved for cash transmitters.
It’s an argument crypto has been making for years, sadly, usually within the summary language of decentralization and autonomy.
However the stakes have change into more durable to disregard. Prosecutors have examined aggressive theories of legal responsibility in high-profile instances involving non-custodial instruments, and builders have watched as a patchwork of federal guidelines and state licensing regimes turned compliance right into a guessing recreation.
In their very own 2024 letter to Legal professional Common Merrick Garland, Sens. Cynthia Lummis and Ron Wyden warned {that a} broad interpretation of money-transmission legislation “threatens to criminalize People providing non-custodial crypto asset software program providers.”
The brand new invoice tries to show that warning right into a rule.
The deeper story is that outdated regulatory structure, written for Western Union-era wiring and pay as you go playing cards, is straining to map itself onto open-source code, decentralized networks, and software program that can be utilized with out the writer ever touching buyer funds.
When code turns into conduct
To grasp why a developer would possibly care about being labeled a “cash transmitter,” you must begin with how the US polices funds.
On the federal stage, FinCEN, the Treasury bureau liable for anti-money-laundering (AML) guidelines, treats many cost intermediaries as cash providers companies (MSBs).
MSBs should register, run AML applications, file suspicious exercise stories, and preserve information.
FinCEN’s 2019 steering lays out the precept in plain phrases: Cash transmission entails accepting and transmitting “worth that substitutes for forex,” and it doesn’t matter whether or not the worth is moved by way of a financial institution wire, an app, or a blockchain transaction.
Layered on high is a legal statute, 18 U.S.C. § 1960, that makes it an offense to knowingly function an unlicensed cash transmitting enterprise.
That “unlicensed” piece could be triggered in a number of methods: by failing to register federally when required, by violating state licensing necessities, or by transmitting funds related to illegal exercise.
States matter right here greater than many outsiders understand. Even when a enterprise believes it’s outdoors federal MSB guidelines, state money-transmitter licensing can nonetheless chunk, and it may be costly, sluggish, and inconsistent.
Some states interpret their statutes broadly, whereas others provide clearer exemptions.
For a startup that touches buyer funds, that is painful and finally acquainted.
However for a developer who publishes open-source pockets code, runs a node service, or maintains infrastructure different individuals use, the concept that they may be pressured into the identical licensing regime as a remittance store feels each absurd and existential.
That rigidity has been on show within the authorized fights round privateness instruments and DeFi.
The US Justice Division’s prosecution of Twister Money co-founder Roman Storm helped crystallize a worry that has hovered over crypto for a decade: that writing software program might be handled as working a monetary enterprise, even the place the software program itself doesn’t maintain buyer cash.
The Justice Division has argued that the service functioned like a cash transmitter and will have applied compliance controls.
Storm’s aspect has emphasised the autonomy of the code and the dearth of custody over customers’ funds.
The case did nothing to resolve the coverage debate, appearing as a substitute as gasoline to an already roaring hearth.
A jury delivered a combined consequence in 2025, convicting Storm on an unlicensed money-transmission conspiracy cost whereas deadlocking or acquitting on extra critical counts.
Crypto advocates learn the consequence as a warning flare for builders of non-custodial programs.
In opposition to that backdrop, Lummis and Wyden’s invoice is finest understood as a bid to attract a vibrant line between two worlds: software program publishing and funds custody.
The “non-controlling” line
The invoice itself is compact, coming in at simply 5 pages, but it surely’s dense with definitions, as a result of definitions are the place regulation lives.
First, it defines who counts as a lined “developer or supplier”: primarily, anybody who creates or publishes software program that facilitates a distributed ledger or gives upkeep to it, or affords a service related to a distributed ledger.
It additionally defines “distributed ledger service” broadly sufficient to incorporate programs that allow customers to ship, obtain, change, or retailer digital belongings.
Then it introduces the important thing idea: a “non-controlling” developer or supplier.
The invoice’s core declare is that should you don’t management the belongings, can’t unilaterally transfer them, and don’t have the authorized proper to grab them, you shouldn’t be handled as a cash transmitter for the needs of federal cash transmission legal guidelines.
In follow, that’s an try and formalize a distinction regulators already lean towards, however usually go away fuzzy in software.
FinCEN’s 2019 steering notes that an individual performing a sure function in growing or promoting a software program software could be totally different from the particular person utilizing the applying to simply accept and transmit worth.
The compliance obligation attaches to the transmitter, not essentially the toolmaker.
Why isn’t that sufficient? As a result of FinCEN steering just isn’t the identical as a statutory secure harbor.
Steering could be reinterpreted, narrowed, or just ignored by a unique company in a unique context.
Builders additionally fear about what occurs when federal ambiguity meets state licensing statutes, or when legal prosecutors check expansive readings of what it means to “conduct” a cash transmitting enterprise.
That’s why the 2024 Lummis-Wyden letter leaned on the time period “accepting,” arguing that Congress meant to seize actors who truly obtain buyer funds, not those that publish code individuals use to maneuver their very own belongings.
If you happen to’re in search of the invoice’s sensible promise, it’s this: to make it safer to do the boring, foundational work crypto runs on (sustaining pockets software program, publishing open-source libraries, working infrastructure that relays transactions) with out waking as much as the existential query of whether or not you’ve by accident change into a regulated monetary middleman.
However the line just isn’t so simple as custody versus no custody.
The toughest instances dwell within the center, the place the “management” the invoice refers to is shared, oblique, or exercised by way of design.
Take into account a developer who deploys sensible contracts that may be upgraded, paused, or parameter-changed with admin keys, or a staff that controls a front-end interface, units charges, and has discretion over which transactions are routed or prioritized.
The farther you progress from pure publishing and nearer to ongoing operational discretion, the extra a prosecutor, or a state regulator, could argue that you simply’re not simply offering software program, you’re working a service.
That’s why the invoice’s deal with unilateral means and authorized proper is so essential.
It tries to protect room for enforcement in opposition to actors who truly can transfer or seize consumer funds whereas giving cowl to those that can’t.
Whether or not it succeeds will depend upon how clearly the time period “non-controlling” maps onto real-world programs that usually combine open-source parts with hosted providers, admin dashboards, and managed interfaces.
There’s additionally a legislative subtext.
The same thought has circulated within the Home: there’s a Blockchain Regulatory Certainty Act invoice launched in 2025 that would supply a secure harbor for non-controlling builders and repair suppliers.
The Senate model arrives at a second when lawmakers are concurrently wrestling with broader market-structure questions, together with who regulates what, how AML ought to apply to DeFi, and whether or not stablecoin regimes ought to look extra like banking guidelines or securities guidelines.
In that context, developer protections can change into both a principled boundary or a bargaining chip.
What occurs subsequent
The arduous fact about Washington is that launched doesn’t equal handed.
Payments like this usually perform as indicators: they inform businesses how lawmakers need an issue framed, they provide lobbyists a textual content to rally round, they usually stake out a negotiating place in a bigger package deal.
The proposal is a standalone push to lock in developer protections because the Senate nears a broader market-structure unveiling, a reminder that the struggle over definitions is going on in parallel to the struggle over jurisdiction.
Lummis’s personal press launch explicitly frames it as defending builders and infrastructure suppliers who don’t management consumer funds from being handled as cash transmitters below federal legislation.
Probably the most helpful query here’s what this invoice modifications, even when it doesn’t go rapidly.
One reply is that it narrows the narrative house prosecutors and regulators can occupy.
When senators put a definition into invoice textual content, like writing “non-controlling” right into a statutory body, they create a reference level that protection attorneys, trade teams, and judges can cite to argue what Congress thinks the legislation ought to imply.
That has been seen in different crypto fights, the place legislative proposals, even failed ones, change into a part of the broader interpretive ecosystem.
One other reply is that it forces a sharper dialog about compliance design.
If the longer term authorized boundary is management, then system architects have incentives to attenuate management.
That might imply eradicating admin keys, limiting upgradeability, decentralizing interfaces, or making it clear, each technically and contractually, {that a} developer can not unilaterally transfer belongings.
It additionally creates a brand new sort of threat tradeoff: the extra you decrease management for authorized security, the more durable it might be to reply rapidly to hacks, bugs, and governance crises.
For the general public, the invoice is a lens right into a quieter shift.
The early crypto argument was that software program is impartial, and customers are liable for their actions.
The fashionable regulatory pushback is that instruments could be designed to facilitate abuse, and that revenue, governance, and operational involvement can flip that impartial code right into a managed service.
The 2026 invoice is an try and protect an area for open-source infrastructure to exist with out being regulated out of existence, whereas nonetheless leaving room to punish precise intermediaries who deal with different individuals’s cash.
The result will doubtless be messy as a result of that’s how the actual world is.
Wallets could be self-custodial however default to hosted routing. Decentralized protocols can have small teams with significant levers.
Interfaces could be open-source however managed by way of domains, app shops, and curated endpoints.
Regulators know this, and so do builders.
The subsequent section of crypto regulation shall be determined by who controls the levers that transfer worth, and by whether or not Congress can write guidelines that acknowledge the distinction between a device, a service, and the grey territory in between.
If Lummis and Wyden get their means, at the very least one line shall be clearer than it’s right now: writing code just isn’t the identical factor as transferring cash.