1. Introduction
The 2022 amendments (the “Amendments”) to the Uniform Commercial Code (UCC) add a new Article 12 to the UCC and amend most of the other Articles of the UCC, in particular Article 9, to provide new and specific rules for sales of and security interests in certain types of digital assets. These rules are more precise and attuned to market expectations than the pre-Amendment UCC rules for these types of assets.
Examples of types of assets and transactions that the Amendments could cover are sales of and security interests in:
- Electronic accounts (generally including accounts receivable) and electronic payment intangibles (including electronic promises to pay akin to negotiable instruments and electronic loan agreements),
- Electronic (fiat) money (government initiated and adopted),
- Cryptocurrency (non‑fiat)
- Certain non‑fungible tokens (NFTs).
This Report first reviews how sales of and security interests in these assets are handled under current law. It then summarizes the provisions of the Amendments likely to be addressed by legal opinion letters. The Report concludes with a discussion of opinions likely to be requested on sales and security interests covered by the Amendments and provides illustrative opinion language and related stated and unstated assumptions.
This Report supplements the TriBar 2003 Report on opinions under the 1999 revisions to Article 9 of the UCC.
2. The UCC Before the Amendments
The UCC before the Amendments does not specifically and comprehensively address the types of digital assets addressed by the Amendments. Thus, many transactions in which these types of assets are used as collateral adopt workaround approaches. One common approach is based on UCC Article 8:
- The digital assets are transferred to a securities intermediary,
- The securities intermediary agrees to treat the digital assets as “financial assets” and credits them to the debtor’s securities account, thereby creating a security entitlement with respect to the financial asset, with the debtor as the entitlement holder, and
- The secured party then obtains “control” of the security entitlement, which perfects the secured party’s security interest in the security entitlement.
Another, although less common, approach taken under pre-Amendment law is:
- The debtor provides to the secured party the private key for an asset maintained on a distributed ledger,
- The secured party transfers the asset to the secured party’s “wallet,” and
- The secured party files a financing statement to perfect its security interest.
Neither of these approaches provides the securities intermediary (in the first approach) or the secured party (in the second approach) legal assurance that the debtor held the digital asset free of other property claims or that the securities intermediary or the secured party will acquire the digital asset free of other property claims. This creates legal uncertainty, which the Amendments resolve with rules providing assurance that:
- the securities intermediary and the secured party can acquire their interests free of the property claims of others, and
- the secured party’s security interest will be eligible for super‑priority status.
3. Summary of the UCC Amendments
3.1. Introduction
The Amendments provide rules for transfers of “controllable electronic records” (CERs), controllable accounts, and controllable payment intangibles to buyers and secured parties. Under the Amendments, a transferee of this type of property takes free of a property claim to the CER, controllable account, and controllable payment intangible if the transferee is a “qualifying purchaser.” In addition, under the Amendments a secured party that obtains control of the CER has priority over another secured party that does not have control, including a secured party that has earlier perfected its security interest only by the filing of a financing statement. None of these rules exist under current law.
The definition of CER excludes certain types of assets, even if they would otherwise meet the definition of a CER:
- Money (fiat),
- Investment property,
- Electronic accounts and electronic payment intangibles,
- An electronic copy of a record evidencing chattel paper,
- “Transferable records” under the Uniform Electronic Transactions Act (UETA) and the Electronic Signature in Global Commerce Act (E‑SIGN), and
- Documents of title under UCC Article 7.
3.2. New Article 12—Controllable Electronic Records
Article 12 is selective in its application, applying only to particular issues (described below) related to outright transfers of and security interests in CERs, controllable accounts, and controllable payment intangibles. As discussed below, many of the terms and concepts used in Article 12 also apply to the Amendments applicable to other parts of the UCC.
(i) Controllable electronic records
Each word in the phrase “controllable electronic record” is important. Analyzing the definition is easiest reading from right to left:
- A CER must first be a “record,” which is information stored in some manner and retrievable in perceivable form,
- The record must be “electronic,” and
- The electronic record must be “controllable.”
A non‑fungible token (NFT) can be a CER if it meets the definition of “CER.” An NFT often is referred as being “tethered” or “linked” to one or more other assets such that the transfer of the NFT without more also transfers an interest in the other asset. The Amendments do not address whether the transfer of a CER to which another asset is “tethered” or “linked” has any effect on the tethered or linked asset, except for controllable accounts and controllable payment intangibles that are evidenced by a CER, which are discussed in more detail below. For other kinds of tethered or linked assets, other law, not Article 12, governs the effect of the transfer of the CER on the tethered asset.
(ii) Controllable accounts and controllable payment intangibles
The UCC broadly addresses rights to payment and classifies them in different ways depending on the nature of the transaction under which the right to payment arises, the nature and scope of any collateral, and the way the right to payment is evidenced (if the way is evidenced at all). Sometimes different rules apply to the different classifications. For example, a right to payment might arise out of a sale of goods. That right to payment would likely be an “account” (including a “controllable account”), “chattel paper” (including chattel paper evidenced by an electronic record), or an “instrument” (including a “promissory note”).
The Amendments build on these rules. A controllable account or a controllable payment intangible is an “account” or “payment intangible” that:
- Is evidenced by a CER and
- Provides that it is payable to the person in control of the CER that evidences the controllable account or controllable payment intangible.
(iii) Control
For a person to have “control,” that person must have each of the following powers:
- The power to avail itself of “substantially all” of the “benefits” of the electronic record,
- The “exclusive” power to prevent others from enjoying “substantially all” of the benefits of the electronic record,
- The “exclusive” power to transfer control or to cause another person to obtain control of the electronic record, and
- The power readily to identify itself as having these powers.
The term “exclusive,” in some circumstances, does not prohibit more than one person from having the relevant power. A power is still “exclusive” even if the power is “shared” (as defined in Article 12) with another person. When a relevant power is “shared” the power remains “exclusive,” except in stated circumstances. A power is not “shared” in the relevant sense with another person and therefore is not “exclusive” as defined in Article 12 if:
- The person asserting “control” can exercise the power only if the other person also exercises the power, and
- The other person can exercise the power without the exercise of the power by the person asserting control or the other person is the transferor of an interest in the CER to the first person.
Because of the difficulty of proving that another person does not exist who has this power, Article 12 provides a presumption that a person who has the power has it “exclusively.”
A person may have control through another person who has control if the other person acknowledges that it has control on behalf of the first person.
A person has control of a controllable account or a controllable payment intangible only if the person obtains control of the CER that evidences the controllable account or controllable payment intangible.
(iv) “Take free” rule
Article 12 applies to outright transfers of and security interests in CERs, controllable accounts, and controllable payment intangibles. Article 12 provides to these types of assets many of the characteristics of negotiability that the UCC did not provide to them before the Amendments.
A person who purchases a CER acquires all rights in the CER (and any controllable account or controllable payment intangible evidenced by the CER) that the transferor had or had the power to transfer. This is often referred to as the “shelter” principle. In addition, under the “take‑free” rule, a “qualifying purchaser” takes its interest in a CER, controllable account, or controllable payment intangible (as applicable) “free” of any property claim to the asset.
A “qualifying purchaser” is a person who:
- Acquires a CER in a transaction that constitutes a “purchase,”
- Has control of the CER,
- Gives value,
- Acts in good faith, and
- Does not have notice of a claim of a property right in the CER.
As discussed above, a person obtains control of a controllable account or a controllable payment intangible only by obtaining control of the CER that evidences the controllable account or controllable payment intangible. Correspondingly, a person is a qualifying purchaser with respect to a controllable account or controllable payment intangible only if the person has control of the CER that evidences the controllable account or controllable payment intangible.
Under the shelter principle, a purchaser who acquires a CER (or a controllable account or controllable payment intangible) from a qualifying purchaser acquires all rights in the CER (or the controllable account or controllable payment intangible) that the qualifying purchaser had or had the power to transfer. Therefore, the purchaser acquires the CER (or the controllable account or controllable payment intangible) free of any property claim in the CER (or the controllable account or controllable payment intangible) that preceded the acquisition of the CER by the qualifying purchaser, even if the purchaser from the qualifying purchaser would itself not satisfy the requirements for being a “qualifying purchaser.”
(v) Choice of law
The law of the “controllable electronic record’s jurisdiction” applies to matters “covered” by Article 12. The “controllable electronic record’s jurisdiction” is the first of the following to apply (in the order stated):
- The jurisdiction “expressly” provided for in the CER or a record logically associated with the CER as the “controllable electronic record’s jurisdiction,”
- The jurisdiction “expressly” provided for by the system in which the CER is recorded as the “controllable electronic record’s jurisdiction,”
- The jurisdiction “expressly” provided for in the CER or a record logically associated with the CER as the “jurisdiction” that governs the CER generally,
- The jurisdiction “expressly” provided for by the system in which the CER is recorded as the “jurisdiction” that governs the CER generally,
- Washington, DC, if the Amendments are in effect in Washington, DC, or
- Washington, DC, as if Washington, DC has adopted Article 12 and the conforming amendments to the other articles of the UCC, and they are in effect in Washington, DC.
The law of the jurisdiction that governs a CER generally also governs the perfection, effect of perfection and nonperfection, and priority of a security interest in a CER, with one exception, as discussed below.
At least for the near term, many CERs do not and will not have “express[]” provisions as described in the first four elements in the waterfall:
Many controllable electronic records, attached or logically associated records, and systems in which controllable electronic records are recorded that exist at the time of the 2022 Amendments do not identify the “controllable electronic record’s jurisdiction” or the governing law (some permissioned systems being exceptions).
As a result, the last two elements of the waterfall will frequently apply to CERs. Because the Amendments are likely to be in effect soon in the District of Columbia, the next-to-last element of the waterfall likely will soon be the relevant provision in many jurisdictions. This probability, along with the inherent difficulty of determining the CER’s jurisdiction, make it appropriate to include all express assumption in an opinion letter on control (as described below).
3.3. Revisions to Article 9—CERs, Controllable Accounts, and Controllable Payment Intangibles
(i) Attachment of a security interest
The Amendments make only a few changes in the rules governing attachment of a security interest in a CER, a controllable account, or a controllable payment intangible. The assets subject to Article 9 affected by the Amendments fall within the following types of collateral, which the Amendments do not change:
- CER – “general intangible”
- Controllable account – “account”
- Controllable payment intangible – “payment intangible.”
Thus, a collateral description in the transaction documents does not need to be changed to grant a security interest in a CER, controllable account, or controllable payment intangible.
(ii) Perfection of a security interest in a CER, controllable account, or controllable payment intangible
A security interest in a CER, a controllable account, and a controllable payment intangible can be perfected by the filing of a financing statement or by control. A sale of a controllable payment intangible, as with the sale of any payment intangible, is automatically perfected. Although Article 12 can apply to the sale of a CER, Article 9 does not apply to a sale of a CER (although a CER is a “general intangible,” it cannot be a payment intangible). As amended, however, Article 9 incorporates the Article 12 definition of “control” (discussed above) for CERs, controllable accounts, and controllable payment intangibles when Article 9 applies to a transaction involving those types of assets.
(iii) Priority of a security interest in a CER, controllable account, or controllable payment intangible
A security interest in a CER, controllable account, and controllable payment intangible perfected by “control” of a CER (and any controllable account or controllable payment intangible evidenced by the CER) has priority over a security interest not perfected by control. Unlike the qualifying purchaser provision of Article 12, this Article 9 priority is not conditioned on the secured party’s not having notice of someone else’s property claim to the collateral.
(iv) Choice of law for perfection, the effect of perfection and nonperfection, and the priority security interests in CERs
The choice‑of‑law rule that applies to CERs, controllable accounts, and controllable payment intangibles for matters covered by Article 12 also applies to perfection, the effect of perfection and nonperfection, and the priority of a security interest in a (i) CER and (ii) controllable account or controllable payment intangible evidenced by the CER, except for the perfection of a security interest in a CER, controllable account, or controllable payment intangible by the filing of a financing statement. Perfection of a security interest in a CER (a general intangible), controllable account, or controllable payment intangible by filing a financing statement is governed by the pre-Amendment rule, which applies the law of the “location” of the debtor. However, even for a security interest in a CER, controllable account, and controllable payment intangible perfected by the filing of a financing statement (where perfection is governed by the law of the “location” of the debtor), the effect of perfection and nonperfection and the priority of the security interest is governed by the controllable electronic record’s jurisdiction (even in the absence of control).
Choice‑of‑law issues call for particular attention when preparing an opinion on the perfection by control of a security interest in a CER, controllable account, or controllable payment intangible.The applicability of the Amendments’ requirements for perfection by control depends on whether the Amendments are in effect in the forum jurisdiction and the jurisdiction whose law is applied (by the court in the forum jurisdiction applying the forum’s choice‑of‑law rules) to the particular issue. Even if the Amendments are not in effect in the forum jurisdiction, the Amendments may apply to the transaction under the forum’s choice-of-law rules. For example:
- If litigation is pending in a jurisdiction where the Amendments are not in effect, the forum court would not classify the CER as a “CER” and instead would classify the CER as an ordinary “general intangible”; if the debtor is “located” in Delaware (where the Amendments are in effect), the forum court would then apply Delaware law to characterization and related issues, the forum court (applying Delaware law) would classify the CER as a “CER,” and the Amendments would apply to, for example, control of the CER (without regard to the CER’s jurisdiction).
- Conversely, if litigation is pending in a jurisdiction where the Amendments are in effect, the forum court would classify the CER as a “CER,” apply the law of the CER’s jurisdiction to characterization, perfection, and related issues, and, if the Amendments are not in effect in the CER’s jurisdiction, the forum court would then apply the law of the CER’s jurisdiction (which does not recognize the concept of a CER) and the Amendments would not apply, for example, to control of the CER.
The treatment of these choice-of-law rules in an opinion letter is discussed below.
3.4. Revisions to Article 9—Money
(i) General Meaning of “money”
The Amendments revise the Article 1 definition of money. Under the new Article 1 definition the asset must be a “medium of exchange,” and the “medium of exchange” must have been adopted or authorized by a government as a medium of exchange. The Amendments to Article 9 narrow the new Article 1 definition of “money” for purposes of transactions covered by Article 9 (described below).
The term “money” (as defined in Article 1) does not include an electronic record that “existed” before the electronic record was adopted or authorized by a government as a medium of exchange. Thus, under the revised Article 1 definition of money, existing types of cryptocurrency (including bitcoin) are not and can never be “money” under the UCC because they existed before any government adopted them as money (but existing cryptocurrencies can still be CERs).
The definitions in the UCC (pre– and post Amendment) of “account,” “negotiable instrument,” “instrument,” “promissory note,” “chattel paper,” and “payment intangible” each apply to a “right to payment” and require that the right to payment be a “monetary obligation.” The term “monetary” is derived from the definition of “money” in Article 1 (not the narrower definition in Article 9). Consequently, if an obligor cannot be required by the obligee to pay an obligation in “money,” then the obligation is not a “monetary obligation,” and therefore is not one of the types of property listed in the first sentence of this paragraph. Instead, in that circumstance the obligation would be a “general intangible.”
As a result, in that circumstance:
- Any description of a non‑monetary obligation as collateral in a security agreement or indication of collateral in a financing statement should refer to a “general intangible” or use another appropriate term.
- Because the obligation would not be an “account” or a “payment intangible,” it cannot be a “controllable account” or a “controllable payment intangible.”
- Because the obligation cannot be an “instrument,” “promissory note,” or “chattel paper,” even if evidenced by a relevant writing, a security interest in that obligation could not be perfected by possession.
- Because the obligation cannot be a “payment intangible,” the “automatic” perfection rule of UCC § 9‑309(a)(3) for sales of payment intangibles would not apply.
- Nor does Article 9 apply to a sale of a general intangible (that is not a payment intangible).
(ii) Meaning of “money” under Article 9
Article 9’s definition of “money” limits the Article 1 definition of “money” for purposes of Article 9:
- Central bank digital currency (CBDC) in the form of a deposit account can be “money” under the Article 1 definition but is not “money” for purposes of Article 9. CBDC in the form of a deposit account is instead treated for Article 9 purposes as a “deposit account.”
- An electronic record that is “money” under the Article 1 definition is not “money” for purposes of Article 9 if it is not “controllable.” Article 9 refers to money in electronic form that is controllable as “electronic money.” Thus (as described below), money in electronic form that is not controllable will not be subject to the perfection procedures either for tangible money or “electronic money.” Instead, money in electronic form that is not controllable will be a “general intangible.”
(iii) Perfection of a security interest in electronic money
A security interest in tangible money as original collateral can be perfected only by possession of the money (as under current law). A security interest in “electronic money” as original collateral can be perfected only by control.
(iv) Priority of a security interest in electronic money
The pre-Amendments UCC’s “take free” rules for transferees of money who are not in collusion with the debtor (the transferor) have been expanded to apply to electronic money in a manner similar to their application to tangible money. The effect of this is that a security interest in money that is perfected by control generally has priority over a security interest that is not perfected by control.
(v) Choice of law for electronic money
The UCC provides no special choice‑of‑law rule for the perfection, the effect of perfection and nonperfection, and priority of a security interest in electronic money. Consequently, Article 9’s default rule that the law of the debtor’s “location” applies (unless preempted by federal law).
3.5. Revisions to Article 9—Chattel Paper
(i) Definition of chattel paper
The Amendments clarify that the definition of “chattel paper” refers to the right to payment of a “monetary obligation” evidenced by a record. The definition no longer refers to the nature of the record evidencing that right to payment. To reflect that clarification (along with the other elements of the definition), the Amendments eliminate the defined terms “tangible chattel paper” and “electronic chattel paper.” The nature of the record evidencing the chattel paper affects the method of perfection and the priority of a security interest in chattel paper.
The Amendments also clarify the definition of “chattel paper” for hybrid transactions—i.e., transactions involving both (i) a right to payment secured by specific goods or a lease of goods and (ii) other transactions, such as the sale of services or the license of specific intellectual property. In a hybrid transaction, the term “chattel paper” applies to (i) a monetary obligation secured by goods only if the “specific goods” subject to the security interest are the “primary” collateral and (ii) a lease of goods only if the “predominant” purpose of the lease transaction relates to the possession and use of specific goods. If the transaction does not create “chattel paper,” then the payment obligation will probably be an account and the Article 9 rules governing “accounts” (including controllable accounts) (rather than “chattel paper”) would apply.
(ii) Perfection by control of a security interest in chattel paper where there is an electronic record evidencing the chattel paper
The Amendments provide for an additional method of “control” to perfect a security interest in chattel paper where there is an electronic copy of a record evidencing the chattel paper. The new method of “control” has a definition, sharing rules, a presumption of exclusivity, and a provision for control through another person comparable to the provisions relating to the meaning of control for a CER in Article 12.
If there are both a tangible copy of a record evidencing the chattel paper and an electronic record evidencing the chattel paper, the secured party can still perfect its interest in the chattel paper (without filing a financing statement) but only by the secured party’s both possessing each authoritative tangible copy of the record evidencing the chattel paper and obtaining control of each authoritative electronic copy of the electronic record evidencing the chattel paper.