Crypto Summer Heats Up as Senate Kicks Off Digital Asset Market Structure

A New Beginning
It’s been almost ten years since lawmakers started circling the big question: how do you regulate an industry that’s redefining what assets even are? Congress’s efforts to pass digital asset legislation finally broke through with the historic enactment of the GENIUS Act (stablecoins) and the passage of the CLARITY Act (market structure) in the House of Representatives—passing 294-134, with 78 Democrats voting in favor.
The Senate is now considering market structure, with two competing bills vying for attention: the House’s CLARITY Act and the Senate Banking Committee’s discussion draft of the Responsible Financial Innovation Act of 2025 (RFIA), made public in late July by Senate Banking Committee Chairman Tim Scott, Sen. Cynthia Lummis (Chair of the Subcommittee on Digital Assets), Sen. Bill Hagerty (the primary force behind the GENIUS Act), and Sen. Bernie Moreno. Along with the draft RFIA, the group released a wide‑ranging Request for Information (RFI), seeking feedback on many topics including definitions of terms, issuer disclosures, trading venue obligations, custody, insolvency, illicit finance, bank activities, trading by insiders, and federal preemption of state laws.
Since the Senate Banking Committee has oversight authority over the Securities and Exchange Commission (SEC) but not the Commodity Futures Trading Commission (CFTC), the Senate Agriculture Committee will develop its own language to be combined with the RFIA to address the areas that will be within the CFTC’s remit.
Comparing RFIA and CLARITY
Here’s where things get technical and interesting: the starting point for each bill is very different because of the way each defines the assets that will be regulated. CLARITY calls the relevant asset a “digital commodity,” which is defined as “a digital asset that is intrinsically linked to a blockchain system, and the value of which is derived from or is reasonably expected to be derived from the use of the blockchain system (emphasis added).” RFIA uses the term “ancillary asset,” which is defined as “an intangible, commercially fungible asset, including a digital commodity, that is offered, sold, or otherwise distributed to a person in connection with the purchase and sale of a security through an arrangement that constitutes an investment contract (emphasis added)” and does not include an asset that provides certain financial rights. Ancillary asset seems the much broader definition because it encompasses any asset that is the subject of an investment contract, while digital commodity is limited to assets that are native to blockchain networks. Yes, this part is dense, but definitions like this decide what and who gets regulated, and how.
Despite this vast difference, the two bills proceed to specify regulatory regimes that are fairly similar. Both focus on the existence of an investment contract as the trigger for the obligations and regulatory structure. They impose disclosure and other obligations on those who distribute the assets when they are the subject of an investment contract and give jurisdiction to the SEC on that basis. They also place limits on insider selling and take up other issues related to the assets. Both give jurisdiction to the SEC over the issuer or originator who conducts the distribution through an investment contract and jurisdiction over secondary markets to the CFTC (as noted above, Senate Agriculture must weigh in on those requirements). Both require rulemakings from the SEC and CFTC to accommodate these new requirements, with CLARITY specifying many new types of intermediaries under the CFTC’s purview and associated rulemakings.
RFIA and CLARITY diverge in one more significant way. CLARITY imposes a “mature blockchain” requirement while RFIA does not. Mature blockchain is the key to allowing distributors to have lighter burdens, insiders to trade more freely, and escaping other requirements. While RFIA utilizes a “common control” concept to place or relieve limits on insider trading, it does not require a mature blockchain for any purposes.
Still, the rapid pace of blockchain innovation may create practical challenges for designing and implementing an effective and lasting regulatory framework. Prescriptive definitions embedded in legislation may produce unintended downstream consequences that constrain innovation as the industry and applications of blockchain technology evolve. In other words, when Congress locks in a definition like “mature blockchain,” it risks boxing out some current innovators as well as tomorrow’s new innovations. And where the concept does not have a hard cut-over, the model risks inhibiting use cases as an asset shifts between SEC and CFTC oversight, creating uncertainty for all stakeholders and driving up legal and compliance costs. By contrast, a technology‑neutral, principles‑based approach, consistent with the SEC and CFTC submissions below, would maintain effective oversight while affording innovators the flexibility and regulatory certainty necessary to experiment and BUILD.
Informing Regulation
While Congress is hard at work on legislation, we should not forget that the SEC and the CFTC have the ability to promulgate regulations. At the CFTC, Acting Chairman Pham has commenced a “crypto sprint” soliciting comments on how the agency might regulate crypto trading and other activities, first through a targeted request and then through a broader request aimed at addressing the recommendations from the President’s Working Group report. We submitted a comment letter in response to the first request, suggesting a framework by which the CFTC could allow its registered intermediaries to open the markets for protocol tokens, those tokens that are integral to the functioning of a protocol, whether blockchain, smart contract or otherwise. Comments on the second request are due October 20, 2025.
Over at the SEC, its Crypto Task Force has been actively soliciting information since February 21, 2025, with Commissioner Peirce’s speech laying out 48 topics on which to provide feedback. We submitted two comment letters. On April 23, 2025, we discussed token classification, decentralization, and the need to ensure that infrastructure providers are not confused with intermediaries. On May 27, 2025, we discussed the “nature of the activity” test as the means by which to evaluate whether an activity constituted intermediary or infrastructure services.
SEC Chairman Atkins gave an important speech on July 31, 2025, about American leadership in crypto and providing a high-level roadmap for the SEC to help achieve that goal. We responded with a comment letter on September 3, 2025 outlining a framework for the SEC to regulate pre-functionality offers and sales of protocol tokens as well as proposing rulemakings to allow SEC-regulated intermediaries to conduct trading and related activities in protocol tokens.
With both agencies focused on developing regulations, through rulemaking, exemptive relief or otherwise, we expect to see initial output from both this fall.
Stay Active and Engaged
As Congress deliberates on how to implement an enduring and flexible approach to digital asset regulation and the SEC and CFTC invite comment on regulatory proposals, now is the time to educate, inform and advocate. Ava Labs and Avalanche Policy Alliance (our new name for Owl Explains!) are proud to participate in many of the ongoing initiatives and advise on how the United States can maintain its global competitiveness in digital assets through public policy and regulation. For more information, see our resources page that includes explainers, articles, comment letters, and issue-specific material on DeFi, tokenization of assets, and stablecoins. Or give us a hoot!