The Central Bank of Russia unveiled a long-awaited conceptual framework to regulate crypto trading on December 23, marking a decisive shift from ad-hoc restrictions toward a structured, licensed market.

Under the proposal, cryptocurrencies and stablecoins will be legally recognized as currency values that can be bought and sold. However, they remain prohibited as a means of payment inside Russia. 

The central bank submitted its legislative proposals to the Government of Russia for review.

The announcement marks the largest effort yet to bring crypto activity under formal financial supervision, while maintaining strict controls on retail risk and capital flows.

The proposal establishes a two-tier investor model, separating retail and professional participants.

Non-qualified investors will be allowed to purchase only the most liquid cryptocurrencies, as defined in future legislation. 

Access will require passing a mandatory risk-knowledge test, and purchases will be capped at 300,000 rubles per year.

Qualified investors will face fewer restrictions. They will be permitted to buy any cryptocurrency except anonymous tokens whose smart contracts conceal transaction data. 

Volume limits will not apply, although risk-awareness testing remains mandatory.

The central bank emphasized that cryptocurrencies remain high-risk instruments, citing volatility, lack of sovereign backing, and sanctions exposure.

Russia is leading Europe in crypto use, over $376B moved in a year, says Chainalysis.

While others talk about regulation, Russians are actually using crypto for real needs; trading, saving, and moving money fast.

Quiet adoption, big numbers. pic.twitter.com/2XcmYx8ioB

Until now, Russia’s crypto policy has been fragmented. Ownership and trading were legal in practice but lacked a clear regulatory pathway. 

Retail access operated in a gray zone, intermediaries faced uncertainty, and enforcement relied on informal restrictions rather than explicit market rules.

The new concept formalizes what was previously tolerated, while sharply narrowing how retail investors can participate. 

It also confirms that Russia will regulate crypto activity through existing financial infrastructure, allowing exchanges, brokers, and trust managers to operate using their current licenses. Additional requirements will apply to crypto-specific depositaries and exchange services.

The framework also clarifies cross-border rules. Russian residents will be allowed to buy crypto abroad using foreign accounts and transfer crypto overseas through Russian intermediaries, provided they notify tax authorities.

The central bank plans to finalize the legislative base by July 1, 2026. From July 1, 2027, illegal crypto intermediation will trigger liability comparable to penalties for illegal banking activity.

This phased approach gives market participants time to align with licensing, disclosure, and compliance requirements.

Overall, Russia is not liberalizing crypto in the Western sense. 

Instead, it is moving crypto out of the gray market, tightening supervision, limiting retail exposure, and positioning regulated crypto trading as an extension of its traditional financial system.

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