Washington has long wrestled with who should police digital assets. The Digital Asset Market Clarity Act of 2025 passed the House this summer, but the Senate had not acted.
Now, two Senate committees have released competing drafts, each promising regulatory order. These drafts create a new jurisdictional map poised to reshape everything from Bitcoin spot markets to Ethereum disclosures and exchange rulebooks.
One draft from the Senate Agriculture Committee expands the Commodity Futures Trading Commission’s role. The Senate Banking Committee’s version creates new SEC authority over “ancillary assets” and clarifies when tokens outgrow securities status.
For anyone in crypto, this choice is vital. These bills could transform custody, classification, and disclosure, redrawing U.S. digital-asset market boundaries.
The Agriculture draft and CFTC authority
The Agriculture Committee’s plan, from Senators John Boozman and Cory Booker, grants the CFTC authority over “digital commodities” and their spot markets. It sets up registration for exchanges, brokers, and dealers, mirroring CFTC oversight of traditional commodities.
Intermediaries would be required to use qualified custodians and segregate customer assets to prevent conflicts of interest with affiliates. The bill allows for joint CFTC–SEC rulemaking for overlapping entities or dual registration, leaving some issues, like DeFi, for later debate.
This version builds on the House Clarity Act and aims to bring crypto spot markets under CFTC oversight. U.S. Bitcoin platforms would have to register as digital-commodity exchanges, meet new capital and custody rules, and offer stricter retail protections.
It could standardize data sharing across venues, improving the surveillance ETF issuers use. ETFs, however, would remain under SEC jurisdiction.
The impact goes beyond paperwork. Moving Bitcoin spot oversight to the CFTC would make exchanges follow commodity-exchange logic, focusing on clear reporting and market surveillance over investor disclosures.
This could give analysts and traders better insight into market quality and liquidity. Despite the CFTC’s expanded role, the SEC would still oversee securities instruments and crypto futures. Dual oversight endures.
The Banking draft and SEC’s “ancillary asset” lane
Across the Capitol, the Senate Banking Committee’s draft, called the Responsible Financial Innovation Act, focuses on digital assets that straddle the line between securities and commodities. It defines an “ancillary asset” as a “fungible digital commodity” distributed through an arrangement that also constitutes an investment contract.
The draft would give the SEC explicit authority to oversee these instruments, requiring issuers to provide disclosures on token distributions, governance, and associated risks. It also gives the agency roughly two years to finalize a rule defining what constitutes an “investment contract,” and it introduces a decentralization certification process that allows a project to exit securities treatment once network control falls below certain thresholds.
This framework provides a conditional escape hatch for coins linked to “active projects,” such as Ethereum. A token could begin life under SEC oversight, subject to disclosure and investor protections, but later “graduate” once governance becomes sufficiently distributed.
This adds structure to a gray area that has haunted the industry since the days of the DAO report. It also compels the SEC to articulate, in writing, what decentralization means, rather than relying on ad hoc enforcement.
Under this model, practical distinctions become sharper. Bitcoin would likely be treated as a digital commodity under the CFTC.
Tokens with enterprise ties would stay under the SEC’s ancillary-asset regime until they prove decentralization. Centralized exchanges would be caught between both frameworks. They would register as CFTC digital-commodity exchanges for spot crypto, but remain subject to SEC oversight for listed securities.
The combined effect could force U.S. platforms to adopt dual registration, stricter capital requirements, and more transparent trading books.
Looking across both approaches, timing is one of the biggest unknowns. The Banking draft imposes specific deadlines for rulemaking.
However, the Agriculture draft leaves key questions unresolved. Both rely on future coordination rules and public consultations before any of this takes effect. The House version has already passed. The Senate proposals are still in discussion, and opposition within both parties has surfaced.
The two drafts currently serve as a working field guide for builders and traders. First, they reveal how U.S. spot venues might evolve under a CFTC-led regime.
Next, they illustrate how token projects could eventually graduate from securities treatment, and how exchanges might need to rebuild internal firewalls. While the drafts do not deliver the clarity their titles promise, they do map out the next stage of the regulatory tug-of-war.
In a market where classification dictates liquidity, custody, and compliance, knowing which agency draws the line first could prove as valuable as any on-chain signal.
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