Stablecoins Find a Home: Bahrain Launches Pioneering Regulatory Framework
In a landmark move that positions Bahrain at the forefront of digital asset regulation in the region, the Central Bank of Bahrain (CBB) launched the Stablecoin Issuance and Offering (SIO) Framework under Rulebook Volume 6, effective July 2025, establishing a comprehensive licensing and regulatory regime for stablecoin issuers. As of July, the Kingdom of Bahrain joins a select group of jurisdictions that have enacted comprehensive regulatory frameworks for stablecoin issuers.
What are stablecoins?
A stablecoin refers to a type of crypto-asset that is often tied one-to-one to a specific currency or asset in the material world. To illustrate, this means that a stablecoin linked to the American dollar would be worth $1. True to its name, this assurance in the form of collateral intends to be stable in value, in comparison to cryptocurrencies. Currently, there are four variations: namely, algorithmic, commodity-backed, crypto-backed, and fiat-backed stablecoins.
In July 2014, the crypto-backed stablecoin, BitUSD, was issued relative to BitShares’ blockchain. Later in October 2014, Tether Limited issued digital tokens, the USDT, backed by the American dollar in physical reserve–and currently maintains its status as the world’s largest stablecoin. Since, hundreds of stablecoins have been issued.[1]
A look into Bahrain’s SIO Module
In the Bahraini legal context–as introduced by the SIO Module[2]–approved stablecoins means fiat-backed stablecoins issued by a licensee under the SIO Module.[3] Fiat-backed stablecoins seek to maintain stable value through reserve assets, referenced to a single fiat currency or multi-currency.[4] Accordingly, reserve assets are held as security by stablecoin issuers.[5] Notably, the SIO regulatory framework allows for single-currency fiat-backed stablecoins.
This regulatory framework establishes a licensing regime which shall be read and applied in conjunction with Volume 6 of the CBB Rulebook, including but not limited to, the Anti-Money Laundering and Combating Financial Crime Module (AML), the Fit and Proper Requirements Module (FM), and the High-Level Controls Module (HC).[6] Under Volume 6 of the CBB Rulebook, licensing and regulatory procedures for crypto-asset services were also previously established.[7]
The SIO Module extensively addresses the governing, enforcement and redressal mechanism for stablecoin issuance and offering. Chapters SIO-2 and SIO-3 encompass licensing procedures and conditions. Paragraph SIO-2.1 comprehensively outlines the requirements for the applicant to be submitted by the potential licensee. This is paired with a non-refundable license application fee of BHD 100 (One Hundred Bahraini Dinars).[8]
In line with SIO-1.1.6, a licensed stablecoin issuer’s eligibility follows a two-pronged assessment[9]
i. Type of stablecoin that may be issued:
Stablecoin issuers may issue single-currency fiat-backed stablecoins pegged to the Bahraini Dinar (BHD), United States Dollar (USD), and or any other fiat currency upon obtaining approval of the CBB.[10] As a requisite, the value of the reserve assets backing the approved stablecoin–with minimum requirement of equal to par value–is to be observed by the stablecoin issuer.[11]
ii. Requirements relating to the eligibility and obligations of the stablecoin issuer:
Chapter SIO-3 lays down eight core licensing conditions to be met. A key point of clarification hereunder is the prerequisite for the stablecoin issuer to be locally incorporated as a Bahraini Joint Stock Company (BSC) with financial resources that are always equal or exceeding the minimum requirement as prescribed in Chapter 4 of the SIO Module, and compliant with pre-operational and licensing requirements.[12]
The CBB shall issue a decision regarding a completed application within sixty (60) calendar days, in accordance with Articles 44 to 47 of the CBB Law.
Integral to fiat-backed stablecoins, Chapter 6 of the SIO Module necessitates the specific composition, custody and management of reserve assets. These reserve assets are to be held with a third party–a bank, investment firm or custodian[13]–arranged by a written contract.[14]
Outside of the general powers and obligations awarded to stablecoin issuers, Chapter 6 also addresses holders of the approved stablecoins. Briefly summarised, the key characteristics are as follows:
Grants the direct legal right to redeem the approved stablecoin for the pegged fiat currency, at par value.[15]
Mandates legitimate redemption requested to be processed at par value and completed within five (5) business days.[16]
Discourages high fees or charges that may deter clients from exercising their right to redemption.[17] Additionally, requires reasonable basis for any imposition.[18]
Requires the establishment and implementation of relevant policies and procedures for redemption. Sets disclosure requirement of redemption policy and procedure.[19]
Issuance or offering yield from interest or reward from the investment of reserve assets.[20]
In further interest of potential holders of such an approved stablecoin, Chapter 7 provides for the preparation of a non-technical reliable and accurate stablecoin whitepaper–aside from its guidelines on marketing, following whitepaper publication–intended to enable potential clients to make a well-informed decision (see Appendix C, SIO Module).[21]
Reflecting a spirit of risk-based oversight and investor protection, the framework includes custody arrangements,[22] recovery plans (see Appendix D, SIO Module),[23] and adherence to global best practices in financial stability–wherein the CBB places prudential requirements,[24] issues stringent reporting measures,[25] contingent to scale and risk, impose limitations and/or restrictions, and classify an approved stablecoin as a “significant stablecoin” (see Appendices D and F, SIO Module).[26]
The same is reflected in its approach to technology governance–requiring secure infrastructure and standard cybersecurity control (see Appendices A and B, SIO Module).[27] Preparatory measures, including the addressing of planned and unplanned system outages, is efficiently incorporated.
The CBB retains enforcement powers, pursuant to Part 11 of the CBB Law, including the authority to impose administrative sanctions, financial penalties as detailed in Appendix E of the SIO Module, and where applicable, criminal sanctions for serious violations in accordance with the CBB Law. Licensees must notify the CBB and where required under the SIO Module, obtain prior written approval from the CBB, for any material change to their business operations or management structure.
The SIO Module offers a clear, rigorous and trustworthy framework, requiring an extensive pre-approval process and heavy documentation. Resultantly, such an approach promotes transparency–effectively reducing ambiguity–and accountability, given the legal certainty and clarity.
SIO: A comparative regulatory perspective
Despite the introduction of digital assets and increased adoption of stablecoins, countries are yet to codify regulatory frameworks to address stablecoin integration. For instance, along with many others, while Circle’s USDC is a popular stablecoin pegged to the American dollar, the United States of America is yet to sign its federal stablecoin legislation–the Guiding and Establishing National Innovation for U.S. Stablecoins (GENIUS) Act–into law following its approval in June 2025.[28] Similarly, the United Kingdom does not yet have a dedicated stablecoin regime, however, if it meets the definition of e-money, it may fall within the scope of the Electronic Money Regulations 2011 and the Payment Services Regulations 2017. Hong Kong is at the precipice–with its Stablecoins Ordinance–regarding fiat-backed stablecoins pegged to the Hong Kong Dollar.[29] In contrast, China had officially banned cryptocurrencies, including stablecoins, but is appearing to gain ground.[30]
The following section explores the current frameworks adopted across the globe, as per the date of this article. This comparative overview of country profiles aims to provide additional insights and gain knowledge on existing practices. Accordingly, hereunder is an assessment of countries that have officially enacted law relating to the issuance and licensing of stablecoins.
Asia
i. Japan
Japan, through its Financial Services Agency (FSA), regulates stablecoin issuance in accordance with the recently amended Payment Services Act, effective as of June 2023. “Electronic payment instruments (EPIs)” corresponds to stablecoins in the national legislation. EPI providers must be registered by the Prime Minister, including foreign EPI service providers with a representative in Japan. The legislation addresses four types of EPIs: with currency-denominated assets–wherein activity in Japanese yen or foreign currency will be carried out in Japanese yen or foreign currency–akin to fiat-backed stablecoins.[31]
ii. Singapore
Singapore, through Monetary Authority of Singapore (MAS), regulates fiat-backed stablecoins by an amendment to the Payment Services Act 2019, effective as on 4 April 2024. In the domestic context, stablecoins are referred to as “digital payment tokens (DPT)” wherein licensees would carry a business of providing a digital payment token service.[32] This framework regulates single-currency stablecoins (SCS) issued in the country, pegged to the Singapore Dollar or currencies of the G10.
Notably, it distinguishes MAS-regulated stablecoins and other tokens which are not classified as MAS-regulated stablecoins. Such tokens refer to SCS which are not issued by banks and are in circulation, with a value not exceeding S$5 million, or tokenised bank liabilities and/or other types of stablecoins; including SCS issued outside of Singapore. Regardless of this differentiation, stablecoins are subject to the DPT regime under the Payment Services Act. A standout element of key requirements relating to the composition, segregation and custody of reserve assets is the reliance on a minimum credit rating.
Europe (with reference to the EU)
i. Switzerland
Known as the first country to issue guidelines relating to the issuance of stablecoins, through its Financial Markets Supervisory Authority (FINMA), Switzerland published a supplement to guidelines relating to initial coin offerings as early as in September 2019.[33] Introducing changes, FINMA issued guidance immediately effective on 26 July 2024. The key changes include the establishment of minimum requirements for default guarantees of banks and necessitating the adequate verification of all stablecoin holders by stablecoin issuers or the supervising financial intermediary.
It is deemed the payment claims generally made against stablecoin issuers and/or any licensing requirements will fall under the purview of the Banking Act and/or the Collective Investment Schemes Act, with steep obligations under the Anti-Money Laundering Act.
ii. European Union
The EU, by way of the Market in Crypto-Assets Regulation (MiCA), fully implemented legislation as of December 2024.[34] With an aim to govern crypto-assets, it established licensing and regulatory requirements for crypto-asset service providers (CASPs). MiCA introduces a tri-classification: (i) electronic or e-money tokens (EMTs): fiat-backed stablecoins with heavy regulatory requirements (ii) asset-referenced tokens (AMTs) which may be backed multi-currency and excludes algorithmic stablecoins, and (iii) any other cryptocurrency excluding EMTs and AMTs. MiCA introduces a regional system that would unify services across all Member States through one authorisation system.[35]
EU Member States shall implement the regulation through their complementing national law and by their national agencies i.e., the National Competent Authority (NCA), and other governing bodies where necessary, namely, the European Banking Authority, the European Securities and Markets Authority, the European (and national) Central Bank.
Middle East (and refers to the GCC)
i. United Arab Emirates
Following the United Arab Emirates (UAE), Bahrain is the second in the GCC and the Middle East to implement regulations for stablecoins. The UAE, through the Central Bank of the UAE’s Payment Token Services Regulation, established rules and conditions for fiat-backed regulated stablecoin activity, effective from 21 August 2024. Nationally recognised as “payment tokens”, the UAE legislation accounts for Dirham payment tokens (pegged to the Dirham) and foreign payment tokens (pegged to foreign fiat currency).[36] According to its licensing regime, a person may be a Dirham Payment Token Issuer or apply for a Foreign Payment Token Issuer Registration.
With the exception of Financial Free Zones, the regulation applies to any natural or legal person seeking to offer and engage in services related to fiat-backed payment tokens. These payment token services (and licensing) are divided into activities of payment token issuance, payment token conversion, and payment token custody and transfer.
Regarding other types of stablecoins, under the regulation, the issuance, promotion, and performance of services relating to algorithmic stablecoins are prohibited. It is also of significance that the Emirate of Dubai governs commodity-backed stablecoins through its Virtual Asset Regulatory Authority.
SIO Bahrain: A brief analysis
Bahrain’s regulatory framework for stablecoins is distinct in several ways compared to other countries, highlighting its proactive and comprehensive approach to regulating digital assets.
Comprehensive Framework and Early Adoption: Bahrain has launched a forward-looking regulatory framework for stablecoin issuance and offering, positioning itself as a leader in digital asset regulation in the region. The CBB has established a comprehensive licensing and regulatory regime for single-currency fiat-backed stablecoin issuers under Rulebook Volume 6. This early adoption and comprehensive approach contrasts with countries that are yet to adopt a stance, besides the creation of a relevant framework.
Regional Leadership and Specific Focus: In the Middle East, Bahrain closely followed the United Arab Emirates in implementing stablecoin regulations. Bahrain’s focus on creating a clear and structured regulatory path for fintechs, financial institutions, and investors to participate confidently in a strictly regulated stablecoin ecosystem further distinguishes it. While the UAE’s regulations recognise stablecoins as payment tokens, and its framework broadly addresses fiat-backed stablecoin activities, Bahrain’s initiative underlines its commitment to bridging regulatory gaps and fostering innovation while maintaining financial stability and consumer protection.
Specific Licensing and Compliance Requirements: Bahrain’s regulatory framework includes detailed licensing conditions and compliance requirements, such as the requirement for stablecoin issuers to be incorporated in Bahrain as Bahraini Joint Stock Companies (BSC) and to maintain financial resources in accordance with the minimum prescribed requirements under the CBB Rulebook Volume 6. This level of specificity in regulation ensures a robust and secure environment for stablecoin operations, which is not always evident in other jurisdictions.
By implementing these measures, Bahrain not only stands out as a regional leader in stablecoin regulation but also sets a benchmark for other countries aiming to integrate stablecoins into their financial systems while ensuring regulatory compliance and consumer protection.
Conclusion
The regulation of and relating to stablecoins is complex and evolving alongside the growing need for country-level regulations. As evidenced by the wide use of stablecoins globally, it is imperative for countries to establish clear regulatory frameworks in the face of potential collapses and volatility despite the promise of stability, like the USDC had previously lost its dollar peg.
Bahrain’s proactive approach in legislating stablecoin issuance and offerings demonstrates its commitment to fostering innovation while maintaining financial stability and consumer protection. By bridging a significant regulatory gap, the SIO Framework positions Bahrain as a leader in digital asset regulation in the Gulf, providing a clear path for fintech, financial institutions, and investors to participate in the stablecoin ecosystem confidently.
Authors:
Saad Al Doseri
Srivani P. Nair
[1] Spencer Feingold, ‘Stablecoin surge: Here’s why reserve-backed cryptocurrencies are on the rise’ (World Economic Forum, 3 June 2025), <https://www.weforum.org/stories/2025/03/stablecoins-cryptocurrency-on-rise-financial-systems/>last accessed 10 July 2025.
[2] CBB Rulebook, Volume 6: Capital Markets, Stable Issuance and Offering Module.
[3] Central Bank of Bahrain Rulebook (CBB), Volume 6: Capital Markets, Glossary History, p.3.
[4] CBB Rulebook, Volume 6: Capital Markets, Glossary History, p.14.
[5] CBB Rulebook, Volume 6: Capital Markets, Glossary History, p.34.
[6] Supra note 2, para SIO-A.1.2.
[7] CBB Rulebook, Volume 6: Capital Markets, Crypto-Asset Module.
[8] Supra note 2, para SIO-2.1.2.
[9] Supra note 2, para SIO-1.1.6.
[10] Supra note 2, para SIO-1.2.1.
[11] Supra note 2, para SIO-1.2.2.
[12] Supra note 2, paras SIO-3.1(1) and (4).
[13] Supra note 2, para SIO-6.4.1(b).
[14] Supra note 2, paras SIO-5.3.3 and 6.4.8.
[15] Supra note 2, para SIO-6.5.1.
[16] Supra note 2, para SIO-6.5.2.
[17] Supra note 2, para SIO-6.5.4.
[18] Supra note 2, para SIO-6.5.6.
[19] Supra note 2, paras SIO-6.5.5 and 6.5.6.
[20] Supra note 2, para SIO-6.6.
[21] Supra note 2, Chapter SIO-7.
[22] Supra note 2, Chapter SIO-10.
[23] Supra note 2, Chapter SIO-9.
[24] Supra note 2, para SIO-4.2.
[25] Supra note 2, para SIO-8.1.
[26] Supra note 2, para SIO-8.2.
[27] Supra note 2, Chapter SIO-9.
[28] Legal Nodes Team, ‘Stablecoin Issuance Regulation in 2025 (US, UK, EU, Asia, Latin America)’ (Legal Nodes, 29 April 2025) <https://legalnodes.com/article/stablecoin-regulation#stablecoin-regulation-in-us> accessed 9 July 2025.
[29] Eddie Yue, ‘Robust and Sustainable Development of Stablecoins’ (Hong Kong Monetary Authority, 23 June 2025) <https://www.hkma.gov.hk/eng/news-and-media/insight/2025/06/20250623/#:~:text=In%20May%202025%2C%20the%20Legislative,implementation%20guidelines%20for%20early%20adoption.> accessed 9 July 2025.
[30] Reuters, ‘China’s tech giants lobby for offshore yuan stablecoin, sources say’ (Reuters, 3 July 2025) <https://www.reuters.com/world/china/chinas-tech-giants-lobby-offshore-yuan-stablecoin-sources-say-2025-07-03/> accessed 9 July 2025.
[31] Payment Services Act (Act No. 61 of 2022).
[32] Payment Services Act 2019 (Amendment Act), Section 6(5)(vi).
[33] FINMA, ‘FINMA publishes ‘stable coin’ guidelines’ (FINMA, 11 September 2019) <finma.ch/en/news/2019/09/20190911-mm-stable-coins/> accessed 9 July 2025.
[34] Regulation (EU) 2023/1114 of the European Parliament and of the Council of 31 May 2023.
[35] Supra note 28.
[36] Central Bank of The UAE Rulebook, Payment Token Services Regulation (2024).
Al Doseri Law Firm - July 22 2025