Citadel pushes SEC to classify open-source developers as unregistered stockbrokers – Uniswap fires back
On Dec. 2, Citadel Securities filed a 13-page letter with the SEC arguing that decentralized protocols facilitating tokenized US fairness buying and selling already meet statutory definitions of exchanges and broker-dealers, and regulators ought to deal with them accordingly.
Two days later, the SEC’s Investor Advisory Committee convened a panel on tokenized equities that made clear the query is now not whether or not shares can transfer on-chain, however whether or not they can achieve this with out dismantling the permissionless structure that constructed DeFi.
The hole between these two positions now defines probably the most consequential regulatory struggle in crypto because the Howey take a look at debates.
Citadel’s letter arrived in the meanwhile when tokenized equities stopped being a thought experiment. The agency welcomes tokenization in precept however insists that realizing its advantages requires making use of “the important thing bedrock ideas and investor protections that underpin the equity, effectivity, and resiliency of US fairness markets.”
In different phrases, the doc means that corporations looking for to commerce tokenized Apple shares should adjust to Nasdaq guidelines, together with clear charges, consolidated tape reporting, market surveillance, honest entry, and registration as an alternate or broker-dealer.
The submitting warns that granting broad exemptive aid to DeFi platforms creates a shadow US fairness market through which liquidity fragments, retail buyers lose Exchange Act protections, and incumbents face regulatory arbitrage from unregistered rivals.
Within hours, Uniswap founder Hayden Adams fired back on X, calling Citadel’s place an try to “deal with software program developers of decentralized protocols like centralized intermediaries.”
He invoked ConstitutionDAO, the 2021 crowdfunding effort that pooled $47 million in Ethereum to bid on a first-edition Constitution at Sotheby’s, solely to lose to Griffin’s $43.2 million bid.
Additionally, Adams zeroed in on Citadel’s fair-access argument, calling it “precise nerve” from the dominant participant in retail order move. The alternate captured crypto’s core narrative of permissionless code versus gatekeeper management and set the phrases for the Dec. 4 panel.
The statutory field citadel desires to shut
Citadel walks by way of the Exchange Act’s definitions to make its case. An alternate is “any group, affiliation, or group of individuals” that “gives a market place or amenities for bringing collectively purchasers and sellers of securities.”
Rule 3b-16 clarifies {that a} system operates as an alternate if it brings collectively orders utilizing established, non-discretionary strategies and if consumers and sellers agree to commerce.
Citadel argues many DeFi protocols meet all three prongs: there’s a “group of individuals” behind the protocol (founding designers, governance organizations, foundations), the protocol brings collectively consumers and sellers through non-discretionary code (automated market makers, on-chain order books), and customers agree to commerce once they submit transactions.
The identical logic extends to broker-dealer standing.
Citadel catalogs DeFi buying and selling apps, pockets suppliers, AMMs, liquidity suppliers, searchers, validators, protocol developers, and good contract developers.
For every, it lists transaction-based charges, governance-token rewards, or order-routing funds. The implication is that protocols that accumulate income tied to securities buying and selling, even by way of code, should register.
That framing aligns with the SEC’s 2024 enforcement motion towards Rari Capital, which charged a DeFi lending protocol and its founders with appearing as unregistered brokers. Citadel desires Rari to serve as the template.
The honest entry requirement turned the flashpoint. Exchanges and ATSs should apply goal standards to all customers, eradicating discrimination in who can commerce and the charges they pay.
Citadel’s letter notes that there are “no equal necessities for unregistered DeFi buying and selling methods, enabling them to restrict entry arbitrarily or desire sure members over others.”
Adams selected that paragraph for his screenshot, arguing that Citadel can’t credibly declare DeFi lacks honest entry when the agency itself dominates retail order move from brokers like Robinhood.
Armani Ferrante, founding father of Backpack, added:
“‘DeFi’ will not be effectively outlined and so all of those conversations are an apples to oranges comparisons. There’s CEXs. Unregulated CEXs. DEXs. And unregulated CEXs pretending to be DEXs.”
What the Dec. 4 panel revealed
The SEC Investor Advisory Committee assembly framed tokenized equities inside a mainstream market construction fairly than treating them as a crypto novelty.
The panel, moderated by Andrew Park and John Gulliver, introduced collectively representatives from Coinbase, BlackRock, Robinhood, Nasdaq, Citadel Securities, and Galaxy Digital.
The agenda examined how issuance, buying and selling, clearing, settlement, and investor protections might work below present guidelines, with an specific concentrate on native issuance versus wrapper fashions, Regulation NMS applicability, interoperability throughout chains, and settlement and short-selling mechanics.
Commissioner Crenshaw delivered the skeptical case. She famous that many tokenized fairness merchandise marketed as wrapped publicity aren’t one-to-one replicas of the underlying shares, with possession rights and entitlements that may be unclear or disconnected from issuers.
Additionally, she questioned whether or not enjoyable necessities just because a product sits on a blockchain invitations regulatory arbitrage.
That framing dovetails with the agenda’s emphasis on distinguishing true equity-like rights from lookalike tokens.
Chairman Paul Atkins countered by pitching tokenization as a modernization project for US capital markets, arguing the Commission ought to allow markets to transfer on-chain whereas retaining US management in world finance.
Outside the assembly, incumbent resistance sharpened. The World Federation of Exchanges warned the SEC towards broad aid that might let crypto companies promote tokenized shares with out the normal regulatory perimeter.
SIFMA echoed a technology-neutral line, supporting innovation however arguing that tokenized securities ought to stay topic to core investor-protection and market-integrity guidelines and that any exemptions must be slender.
Nasdaq’s earlier proposal to deal with qualifying tokenized shares as fungible with conventional shares on the identical order e book, with the identical CUSIP and the identical materials rights, aligns with the path Atkins seems to favor.
Competing theories of management
Citadel’s principle holds {that a} safety is a safety, whatever the ledger.
If you convey collectively consumers and sellers of Apple shares, even tokenized, utilizing automated code and accumulating charges, you carry out alternate or broker-dealer features and will meet these obligations.
This view treats code as infrastructure, not ideology. It assumes that investor safety flows from middleman accountability fairly than from technical design.
Adams’s principle treats open-source code as distinct from intermediaries. A wise contract doesn’t have prospects, doesn’t take custody, doesn’t train discretion, and doesn’t match the Exchange Act’s mid-Twentieth-century mannequin.
Treating protocol developers as brokers conflates writing software program with working a enterprise and fingers incumbents veto energy over which applied sciences can exist.
This view assumes safety flows from transparency and permissionlessness: anybody can audit the code, fork it, or construct competing infrastructure.
Commissioner Hester Peirce, who leads the SEC’s Crypto Task Force, has staked out a place nearer to Adams.
In a February statement, she acknowledged that atypical DeFi front-end builders and open-source developers mustn’t robotically be held to alternate and dealer requirements only for publishing code or operating a non-custodial UI.
Yet Citadel’s letter explicitly lists “DeFi protocol developers” and “good contract developers” as potential intermediaries who design, deploy, and keep infrastructure whereas accumulating charges for executing trades, exercising governance rights, and prioritizing community visitors.
If deploying a sensible contract that lets customers commerce tokenized shares makes somebody a broker-dealer topic to net-capital guidelines, custody necessities, and know-your-customer obligations, then open-source protocol growth turns into legally untenable.
What occurs subsequent
The sign for 2026 is that the SEC will take a look at whether or not tokenized equities can exist inside the identical investor-rights and market-integrity structure that governs at this time’s equities.
Atkins has floated an innovation exemption, a supervised sandbox that might let some tokenized fairness platforms function with out full registration whereas the company research the dangers.
The Dec. 4 panel framed that exemption as a compliance stress take a look at, not a blanket waiver.
The huge unresolved struggle is whether or not innovation pathways will likely be tightly tethered to Regulation NMS and present middleman obligations, or whether or not the SEC will entertain broader experimental carve-outs that TradFi teams concern might fragment liquidity and weaken protections.
If the SEC sides with Citadel, DeFi protocols dealing with tokenized equities face compliance burdens designed for Fidelity and Morgan Stanley, driving exercise offshore or into gray-market wrappers.
If it sides with Adams, conventional individuals will argue that the company created regulatory arbitrage, and litigation from SIFMA and the World Federation of Exchanges will observe.
The end result decides whether or not tokenized US equities can commerce on public blockchains below the permissionless ethos that constructed DeFi, or whether or not opening the inventory market to on-chain settlement means closing DeFi’s open structure in America.
Griffin positioned his guess. The SEC now chooses who will get the structure.
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