After El Salvador's President Nayib Bukele signed it, which U.S. states have been **"good, good"** in advancing Bitcoin strategic reserve legislation?

By: blockbeats|2025/04/29 11:35:32
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On April 29, two bills known as the "Arizona Strategic Bitcoin Reserve Act" successfully passed the final vote in the House of Representatives and are now awaiting signature from Democratic Governor Katie Hobbs. Arizona has become the first state in the U.S. to require public funds to invest in Bitcoin. The SB 1373 bill proposes to establish a Digital Asset Strategic Reserve Fund managed by the state treasurer, which can invest up to 10% of its funds each fiscal year in digital assets such as Bitcoin. The SB 1025 bill allows the state treasury and retirement systems to invest up to 10% of available funds in virtual currency, with a focus on Bitcoin.

At the federal level, in March, Trump signed an executive order calling for the establishment of a strategic Bitcoin reserve and digital asset inventory. Arizona's state government incorporating cryptocurrency into public financial management reflects the increasing mainstream acceptance of digital assets. According to the Bitcoin Laws tracking website, 26 states in the U.S. have proposed bills to create Bitcoin reserves. Below is the progress of bills in states other than Arizona.

After El Salvador's President Nayib Bukele signed it, which U.S. states have been **

States with Clear Support

In addition to Arizona, which has already passed the bills, legislative agendas in Texas, Alabama, and Minnesota are also steadily progressing regarding Bitcoin reserve legislation.

Texas

Texas has shown bipartisan support for Bitcoin reserve legislation. The Senate has passed the "Strategic Bitcoin Reserve Act" (SB-21), allowing the use of public funds to purchase Bitcoin and other high-market-value cryptocurrencies, with a target holding size of $500 billion, and plans to allocate $2.5 billion from the Economic Stabilization Fund. In addition, the House's HB4258 bill further authorizes local governments to invest in cryptocurrency, demonstrating the comprehensiveness of its legislative framework. The bill has now been submitted to the Government Efficiency & Delivery Committee of the state. If the bill successfully passes both houses of the legislature, it will become law on September 1 this year.

Texas has shown early support for cryptocurrency. In 2021, the Texas Legislature established the "Texas Blockchain Workgroup," focusing on blockchain development and attracting a large number of Bitcoin mining companies to settle in Texas with its abundant and cheap energy. For example, Riot Blockchain's Whinstone facility in Rockdale has become the largest single Bitcoin mining center in North America.

Lieutenant Governor Dan Patrick has stated, "Bitcoin is digital gold, and its limited supply and decentralized nature will be a key asset for Texas in the future." According to Bitcoin Magazine, Texas currently has 8 bills related to Bitcoin or cryptocurrency under consideration. Among these eight bills, HB4258 is the fifth to be submitted for committee consideration. Four of the bills, including HB4258, HB1598, SB21, and SB778, all require Texas to establish a strategic Bitcoin reserve.

Alabama

Alabama Republican Senator April Weaver submitted Senate Bill 283 (SB 283) at the beginning of April, following House Bill 482 (HB 482) introduced since March 2025, setting a threshold of "market cap of 750 billion USD" (currently only Bitcoin meets), indirectly pegging Bitcoin as a reserve asset. Additionally, the cryptocurrency must be directly managed by the state treasurer and is not allowed to exceed 10% of the state's budget. If this bill passes, it will take effect on October 1, 2025.

Minnesota

Minnesota Republican House Representative B. Olson submitted House File 2946 (HF 2946) on April 1, 2025, known as the Minnesota Bitcoin Act, with a corresponding Senate File 2661 introduced since March 2025. Both bills are identical, allowing the state investment board to allocate public funds to Bitcoin, accepting BTC as payment for taxes and government transactions, and amending 12 existing laws, including tax codes, retirement plans, and investment regulations to integrate cryptocurrency. If this bill passes, it will take effect on January 1, 2026.

Steady Progress States

New Hampshire

New Hampshire's bill, HB302, was introduced by Republican Representative Keith Ammon and has bipartisan support. The bill allows the state treasurer to invest up to 5% of state public funds (based on general funds, revenue stabilization funds, etc.) in eligible digital assets or precious metals (such as gold, silver), initially proposed at 10% but later reduced to 5% due to security considerations. On April 10, 2025, the bill passed the House floor vote with 192 in favor and 179 against. State Treasurer Monica Meza-Peña stated that if the bill takes effect, pilot investments will be initiated, with an initial scale potentially reaching $180 million.

Ohio

Senator Sandra O'Brien introduced the Ohio Bitcoin Reserve Act SB57 on January 28, 2025, authorizing the state treasury to directly invest in Bitcoin, stipulating a minimum five-year Bitcoin holding period, and requiring state institutions to accept cryptocurrency payments. It also allows state residents, institutions, and universities to donate Bitcoin to the reserve fund. Submitted to the Senate Financial Institutions and Technology Committee on January 29, the bill is currently under committee review with no further progress.

Utah

In early 2025, Utah State Representative Jordan Teuscher introduced a bill titled HB0230, the "Blockchain and Digital Innovation Amendment," on January 21. The bill initially allowed the State Treasurer to invest up to 10% of public funds in digital assets, including Bitcoin, non-fungible tokens (NFTs), and stablecoins, subject to regulatory approval, market capitalization, and liquidity requirements. On March 10, 2025, the Utah State Senate passed HB0230, but removed the key provision allowing the state to invest in Bitcoin, instead providing residents with rights to custody protection of digital assets, mining, running nodes, and participating in staking.

The provision for the state's direct investment in Bitcoin was removed, reflecting legislators' concerns about market risks. Senator Kirk A. Cullimore stated during a meeting on March 7 that the removal of the reserve provision was due to "many concerns about the early adoption of these policies." As of now, Utah has not established a state-level Bitcoin reserve but has shifted legislative focus to regulatory oversight and innovation protection for digital assets.

Florida

Florida's HB 487 bill was introduced in February 2025, allowing the State Chief Financial Officer and State Board of Administration to invest up to 10% of public funds, including the General Revenue Fund and the Budget Stabilization Fund, in Bitcoin. On April 10, with unanimous support (no opposing votes) from the House Insurance and Banking Subcommittee, it moved to review by the Government Operations Subcommittee. It is currently in the Government Operations Subcommittee review stage with no further progress reported.

In addition, Bitcoin reserve bills are being proposed or advanced in Iowa, Missouri, Georgia, Illinois, Kansas, Kentucky, Maryland, Massachusetts, Michigan, New Mexico, North Carolina, Rhode Island, West Virginia, and 13 other states, and have not been explicitly rejected or tabled.

States with Rejected Bills

Oklahoma

Oklahoma's Cody Mennard introduced the HB1203 bill on January 15, 2025, aiming to allow the state's reserve and retirement funds to invest up to 5% in Bitcoin and other digital assets. The bill passed the House with a vote of 77-15 on March 25 and was sent to the Senate. However, on April 15, it was rejected by the Senate Tax and Revenue Committee with a 6-5 vote, resulting in the failure of the bill, and there are currently no signs of further advancement.

Montana

In Montana, legislators introduced House Bill 429 on January 31, 2025, proposing to allow the state to invest up to $50 million in Bitcoin, digital assets, stablecoins, and precious metals as part of the state's financial diversification strategy. However, the bill was rejected in the House on February 21 by a vote of 59 to 41, failing to pass the first round of voting with no indication of being revived. Montana's legislative effort for a Bitcoin reserve has come to a close.

Pennsylvania

In Pennsylvania, Representatives Mike Cabell and Aaron Kaufer introduced House Bill 2664 on November 14, 2024, which would allow the state treasurer to invest up to 10% of Pennsylvania's General Fund, Rainy Day Fund, and State Investment Fund in Bitcoin and cryptocurrency-based exchange-traded products, potentially involving investments of up to $970 million. However, as of a report on March 2, 2025, the bill was "effectively dead" in the legislative process, failing to advance further with no current signs of a reintroduction.

North Dakota

In North Dakota, Representatives Nathan Toman, Josh Christy, and Senator Jeff Barta jointly introduced the Strategic Bitcoin Reserve Bill on January 11, 2025, aiming to allow the state to invest in Bitcoin, although specific investment proportions and details were not specified. However, the bill has not continued to progress, resulting in legislative failure, and there are no signs of a potential revival, marking the end of North Dakota's legislative efforts for a Bitcoin reserve.

South Dakota

Legislators in South Dakota postponed a bill on February 25, 2025, that would have potentially allowed the state to adopt Bitcoin as a strategic reserve asset. The bill's specific details were not clear, but it aimed to enable the state to invest in Bitcoin. The reason for the postponement was cited as the high volatility of Bitcoin prices. The bill has now been terminated with no further progression anticipated.

Wyoming

On January 18, 2025, a bill was introduced in Wyoming, with Senator Cynthia Lummis supporting the introduction of House Bill 0201 on January 18, 2025. The bill would allow the state treasurer to invest in Bitcoin, up to a maximum of 3%, including the General Fund, Permanent Mineral Trust Fund, and Permanent Land Fund. Investments could be made through direct purchases or using regulated Bitcoin exchange-traded products, with annual reporting requirements for transparency. However, the bill has not made further progress and has been categorized as a failed initiative, marking the end of the legislative effort.

The breakthrough in Arizona has set a benchmark for all U.S. states. States like Texas and Alabama are quickly following suit by enacting legislation to incorporate Bitcoin into the public financial framework, aiming to diversify asset risks and seize the opportunity in the digital economy. States that had previously rejected establishing a Bitcoin reserve due to concerns such as the high volatility of cryptocurrency and regulatory challenges, as well as other states currently in the process of advancing similar legislation, may also change course following Arizona's pioneering move. Despite facing multiple challenges, Bitcoin's positioning as "digital gold" is gradually being solidified through local legislation. Whether it can become a mainstream reserve asset remains to be seen, but it is undeniable that cryptocurrency is increasingly being embraced by the mainstream, and the road ahead will only get wider.

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$COIN Joins S&P 500, but Coinbase Isn't Celebrating

On May 13, S&P Dow Jones Indices announced that Coinbase would officially replace Discover Financial Services in the S&P 500 on May 19. While other companies like Block and MicroStrategy, closely tied to Bitcoin, were already part of the S&P 500, Coinbase became the first cryptocurrency exchange whose primary business is in the index. This also signifies that cryptocurrency is gradually moving from the fringes to the mainstream in the U.S.



On the day of the announcement, Coinbase's stock price surged by 23%, surpassing the $250 mark. However, just 3 days later, Coinbase was hit by two consecutive events: a hack where employees were bribed to steal customer data and a demand for a $20 million ransom, and an investigation by the U.S. Securities and Exchange Commission (SEC) into the authenticity of its claim of having over 100 million "verified users" in its securities filings and marketing materials. These two events acted as mini-bombs, and at the time of writing, Coinbase's stock had already dropped by over 7.3%.


Coincidentally, Discover Financial Services, being replaced by Coinbase, can also be considered the "Coinbase" of the previous payment era. Discover is a U.S.-based digital banking and payment services company headquartered in Illinois, founded in 1960. Its payment network, Discover Network, is the fourth largest payment network apart from Visa, Mastercard, and American Express.


In April, after the approval of the acquisition of Discover by the sixth-largest U.S. bank, Capital One, this well-established digital banking company of over 60 years smoothly handed over its S&P 500 "seat" to this emerging cryptocurrency "bank." This unexpected coincidence also portrayed the handover between the new and old eras in Coinbase's entry into the S&P 500, resembling a relay race scene. However, this relay baton also brought Coinbase's accumulated "external troubles and internal strife" to a tipping point.


Side Effects of ETFs


Over the past decade, cryptocurrency exchanges have been the most stable "profit machines." They play a role in providing liquidity to the entire industry and rely on trading fees to sustain their operations. However, with the comprehensive rollout of ETF products in the U.S. market, this profit model is facing unprecedented challenges. As the leader in the "American stack," with over 80% of its business coming from the U.S., Coinbase is most affected by this.



Starting from the approval of Bitcoin and Ethereum spot ETFs, traditional financial capital has significantly onboarded users and funds that originally belonged to exchanges in a more cost-effective, compliant, and transparent manner. The transaction fee revenue of cryptocurrency exchanges has started to decline, and this trend may further intensify in the coming months.


According to Coinbase's 2024 Q4 financial report, the platform's total trading revenue was $417 million, a 45% year-on-year decrease. The contribution of BTC and ETH's trading revenue dropped from 65% in the same period last year to less than 50%.


This decline is not a result of a decrease in market enthusiasm. In fact, since the approval of the Bitcoin ETF in January 2024, the inflow of BTC into the U.S. market has continued to reach new highs, with asset management giants like BlackRock and Fidelity rapidly expanding their management scale. Data shows that BlackRock's iShares Bitcoin ETF (IBIT) alone has surpassed $17 billion in assets under management. As of mid-May 2025, the cumulative net inflow of 11 major institutional Bitcoin spot ETFs on the market has exceeded $41.5 billion, with a total net asset value of $1214.69 billion, accounting for approximately 5.91% of the total Bitcoin market capitalization.


Chart showing the trend of net outflows for Grayscale among the 11 institutions


Institutional investors and some retail investors are shifting towards ETF products, partly due to compliance and tax considerations. On one hand, ETFs have much lower trading costs compared to cryptocurrency exchanges. While Coinbase's spot trading fee rate varies annually in a tiered manner but averages around 1.49%, for example, the management fee for IBIT ETF is only 0.25%, and the majority of ETF institution fees fluctuate around 0.15% to 0.25%.



In other words, the more rational users are, the more likely they are to move from exchanges to ETF products, especially for investors aiming for long-term holdings.


According to multiple sources, several institutions, including VanEck and Grayscale, have submitted applications to the SEC for a Solana (SOL) ETF, with some institutions also planning to submit an XRP ETF proposal. Once approved, this may trigger a new round of fund migration. According to a report submitted by Coinbase to the SEC, as of April, the platform's trading revenue from XRP and Solana accounted for 18% and 10%, nearly one-third of the platform's fee revenue.



However, the Bitcoin and Ethereum ETFs passed in 2024 also reduced the fees for these two tokens on Coinbase from 30% and 15% to 26% and 10%, respectively. If the SOL and XRP ETFs are approved, it will further undermine the core fee revenue of exchanges like Coinbase.


The expansion of ETF products is gradually weakening the financial intermediary status of cryptocurrency exchanges. From their original roles as matchmakers and clearers to now gradually becoming mere "on-ramps and off-ramps" for funds, exchanges are seeing their marginal value squeezed by ETFs.


Robinhood Takes a Stand, Traditional Brokerages Join the Fray


On May 12, 2025, SEC Chairman Paul S. Atkins gave a keynote speech at the Tokenization and Cryptocurrency Working Group roundtable. The theme of his speech revolved around "It is a new day at the SEC," where he indicated that the SEC would not approach enforcement and regulation the same way as before but would instead pave the way for cryptocurrency assets in the U.S. market.



With signs of cryptocurrency compliance such as the SEC's "NEW DAY" declaration, an increasing number of traditional brokerages are attempting to enter the cryptocurrency industry. One of the most representative cases is the well-known U.S. brokerage Robinhood, which began expanding its crypto business in 2018. By the time of its IPO in 2021, Robinhood's crypto business revenue accounted for over 50% of the company, with a significant boost from the Dogecoin "moonshot" promoted by Musk.


In Q1 2025 earnings report, Robinhood showcased strong growth, especially in revenue from cryptocurrency and options trading. Fueled by Trump's Memecoin, cryptocurrency-related revenue reached $250 million, nearly doubling year-over-year. Consequently, Robinhood Gold subscription users reached 3.5 million, a 90% increase from the previous year, with the rapid growth of Robinhood Gold providing the company with a stable source of income.



Meanwhile, RobinHood is actively pursuing acquisitions in the cryptocurrency space. In 2024, it announced a $2 billion acquisition of the long-standing European cryptocurrency exchange Bitstamp. Additionally, Canada's largest cryptocurrency CEX, WonderFi, which recently went public on the Toronto Stock Exchange, also announced its integration with RobinHood Crypto. After obtaining virtual asset licenses in the UK, Canada, Singapore, and other markets, RobinHood has taken a proactive approach in the compliant cryptocurrency trading market.



Furthermore, an increasing number of brokerage firms are exploring the same path. Futu Securities, Tiger Brokers, and others are also dipping their toes into cryptocurrency trading, with some having applied for or obtained the VA license from the Hong Kong SFC. Although their user bases are currently small, traditional brokerages have a natural advantage in user trust, regulatory licenses, and low fee structures. This could pose a threat to native cryptocurrency platforms in the future.



User Data Breach: Is Coinbase Still Secure?


In April 2025, security researchers discovered that some Coinbase user data was leaked on the dark web. While the platform initially responded by attributing it to a "technical misinformation," it still raised concerns among users regarding its security and privacy protection. Just two days before Dow Jones Indexes announced Coinbase's addition to the S&P 500 Index, on May 11, 2025, Coinbase received an email from an unknown threat actor claiming to have obtained customer account information and internal documents, demanding a $20 million ransom to keep the data private. Subsequent investigations confirmed the data breach.


Cybercriminals obtained the data by bribing overseas customer service agents and support staff, mainly in "non-U.S. regions such as India." These agents abused their access to Coinbase's internal customer support system and stole customer data. As early as February this year, blockchain detective ZachXBT revealed on X platform that between December 2024 and January 2025, Coinbase users lost over $65 million to social engineering scams, with the actual amount potentially higher.


Among the victims was a well-known figure, 67-year-old Ed Suman, an established artist in the art world for nearly two decades, having been involved in the creation of artworks such as Jeff Koons' "Balloon Dog" sculpture. Earlier this year, he fell victim to an impersonation scam involving fake Coinbase customer support, resulting in a loss of over $2 million in cryptocurrency. ZachXBT critiqued Coinbase for its inadequate handling of such scams, noting that other major exchanges have not faced similar issues and recommending Coinbase to enhance its security measures.


Amidst a series of ongoing social engineering incidents, although there has not been any impact on user assets at the technical level so far, it has raised concerns among many retail and institutional investors. Especially institutions holding massive assets on Coinbase. Just considering the U.S. BTC ETF institutions, as of mid-May 2025, they collectively hold nearly 840,000 BTC, and 75% of these are custodied by Coinbase. If we price BTC at $100,000, this amount reaches a staggering $63 billion, which is equivalent to the nominal GDP of two Iceland in the year 2024.


Visualization: ChatGPT, Source: Farside


In addition, Coinbase Custody also serves over 300 institutional clients, including hedge funds, family offices, pension funds, and endowments. As of the Q1 2025 financial report, Coinbase's total assets under management (including institutional and retail clients) reached $404 billion. The specific amount of institutional custodied assets was not explicitly disclosed in the latest report, but it should still be over 50% based on the Q4 2024 report.


Visualization: ChatGPT


Once this security barrier is breached, not only could the rate of user attrition far exceed expectations, but more importantly, institutional trust in it would undermine the foundation of its business. Therefore, after a hacking event, Coinbase's stock price plummeted significantly.


CEXs are All in Self-Rescue Mode


Facing a decline in spot trading fee revenue, Coinbase is also accelerating its transformation, attempting to find growth opportunities in derivatives and emerging assets. Coinbase acquired a stake in the options platform Deribit at the end of 2024 and announced the official launch of perpetual contract products in 2025. This acquisition fills in Coinbase's gap in options trading and its relatively small global market share.



Deribit has a strong presence in non-U.S. markets, especially in Asia and Europe. The acquisition has enabled Coinbase to gain a dominant position in bitcoin and ethereum options trading on Deribit, accounting for approximately 80% of the global options trading volume, with daily trading volume remaining above $2 billion.


Meanwhile, 80-90% of Deribit's customer base consists of institutional investors, with their professionalism and liquidity in the Bitcoin and Ethereum options market highly favored by institutions. Coinbase's compliance advantage, coupled with its already robust institutional ecosystem, makes it even more suitable. By using institutions as an entry point, it can face the squeeze from giants like Binance and OKX in the derivatives market.



Facing a similar dilemma is Kraken, which is attempting to replicate Binance Futures' model in non-U.S. markets. Since the derivatives market relies more on professional users, fee rates are relatively higher and stickiness is stronger, making it a significant source of revenue for exchanges. In the first half of 2025, Kraken completed the acquisition of TradeStation Crypto and a futures exchange, aiming to build a complete derivatives trading ecosystem to hedge the risk of declining spot transaction fee income.


With the surge of Memecoin in 2024, Binance, OKX, and various CEX platforms began massively listing small-market-cap, highly volatile tokens to activate active trading users. Due to the wealth effect and trading activity of Memecoins, Coinbase was also forced to join the battle, successively listing popular tokens from the Solana ecosystem such as BOOK OF MEME and Dogwifhat. Although these coins are controversial, they are frequently traded, with fee rates several times higher than mainstream coins, serving as a "blood-boosting" method for spot trading.


However, due to its status as a publicly traded company, this practice is a riskier endeavor for Coinbase. Even in the current crypto-friendly environment, the SEC is still investigating whether tokens like SOL, ADA, and SAND constitute securities.


In addition to the forced transformation strategies carried out by the aforementioned CEXs, they are also starting to lay out RWAs and the most talked-about stablecoin payment fields, such as the PYUSD launched through a collaboration between Coinbase and Paypal, Coinbase's support for the Euro stablecoin EURC by Circle that complies with EU MiCA regulatory requirements, or the USD1 launched through a collaboration between Binance and WIFL. In the increasingly crowded trading field, many CEXs have shifted their focus from just the trading market to the application field.


The golden age of transaction fees has quietly ended, and the second half of the crypto exchange platform game has silently begun.


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