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가상통화 관련 파생상품거래 등에 대한 미국 연방 상품거래법상 쟁점에 관한 고찰-연방상품규제당국(CFTC)의 접근방법을 중심으로-

An Analysis of the Legal Issues regarding Derivatives Transactions, etc. involving Virtual Currencies under the U.S. Commodity Exchange Act – Focusing on the Approaches taken by the Commodity Futures

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초록

2009년 비트코인 출현 이래 비약적으로 진화하고 있는 가상통화가 그 자체 직접 투자대상이 되거나 파생상품의 기초자산으로서 간접적 투자대상이 되는 경우 미국의 규제 사례를 살펴보았다. 가상통화 시장을 직접적으로 규제하는 포괄적인 연방 차원의 법률은 아직까지 마련되어 있지 아니하다. 가상통화의 속성과 기능에 따라서 연방과 주차원에서 해당 관련법에 따라 다수의 규제당국이 관여하는 다면적인 규제체계를 운용하고 있다. 이 글에서는 가상통화 관련 파생상품과 현물거래에 관한 연방 상품거래법의 규제 체계와 동법상 규제당국인 상품선물거래위원회(CFTC)의 접근방식과 적용 사례를 검토하였다. 가상통화에 일반적으로 적용하기 위하여 상품거래법령을 개정하거나 CFTC 규정을 새로 만들지는 아니하였지만, CFTC는 가상통화가 상품거래법상 ‘상품’에 해당한다고 보고 다른 ‘상품’과 마찬가지로 상품거래법을 적용하고 있다. 즉 동법의 기존 법리를 가상통화에 적용하면서 필요한 경우 적극적으로 유권해석을 하는 등의 탄력적인 방식으로 가상통화를 규제하고 있다. 가상통화 관련 파생상품에 대하여 CFTC는 상품거래법상 파상생품의 장내․외 거래 규제, 거래소 등 시장과 관련 업자 규제 및 파생상품시장에서의 불공정거래행위에 관한 규제를 포괄적으로 적용하고, 적격계약참가자에 해당하지 아니하는 자가 소매상품거래를 하는 경우에도 마찬가지 규제 틀이 적용된다고 보고 있다. 가상통화 현물거래의 경우에는 사기적 행위 등 불공정거래행위가 개입된 경우에만 CFTC의 규제 범위 내에 들어간다고 본다. CFTC는 가상통화가 가지는 일반 상품과는 다른 특성 때문에 상품거래법령 적용상 불명확한 점에 대하여는 그때그때 적용기준 발표, 유권해석 등을 통하여 대응하면서 최대한 탄력적인 적용이 가능하도록 신중하게 접근하고 있다. 가상통화 개념부터 그 외연을 열어놓아 향후 기술발전과 가상통화 시장의 진화에 즉응할 수 있도록 하고 있다. CFTC는 상품거래법상 규제당국으로서 가상통화 관련 폰지사기 등 불공정거래행위에 대하여 강력한 제재조치를 지속하고 있고, 불공정거래행위가 개입되지 아니한 경우에도 미등록시장개설, 미등록업자 규제 등 시장질서와 제도의 근간이 되는 틀에 대한 규제도 병행하고 있다. 이 글에서는 2015. 9. CFTC가 처음으로 가상통화를 ‘상품’으로 보고 제재조치를 내린 Coinflip 사건부터 최근에 이르기까지의 주요 제재조치 사례를 분석하였다. 다른 한편으로 CFTC는 가상통화를 제도권내에 수용하기 위한 노력도 게을리 하지 아니하고 있다. 2017. 12. CME등 세계적인 거래소에 비트코인선물 상장을 허용한 사례와 당시 CFTC가 택한 접근방식을 검토하고, 이후 선물업계의 반응과 그에 대한 CFTC의 대응(일반적인 가상통화 관련 파생상품 상장기준 제시 등)을 살펴보았다. 특히 CFTC가 향후 비트코인에서 나아가 이더(Ether) 관련 파생상품의 상장 가능성을 염두에 두고 능동적으로 의견수렴 과정을 주도하고 있는데 주목하였다. 가상통화 관련 파생상품청산회사(DCO) 등록시 해당 신상품의 특성에 따라 탄력적으로 규제권한을 행사한 사례도 간략히 보았다. 앞으로 가상통화 관련 파생상품과 현물거래에 관한 현재의 연방법규제 체계와 CFTC의 접근방식이 지속될지, 연방법원이 어떠한 입장을 취할지, 나아가 연방의회 차원에서의 입법적 보완 움직임 등에 대하여서도 지켜볼 필요가 있다. 최근 일본은 최근 금융상품거래법을 개정하여 가상통화와 관련하여 ICO 및 현․선물 거래에 관한 명시적인 법규제 체계를 마련하였고 영국은 일반투자자의 가상통화 관련 파생상품 투자를 금지하려는 움직임을 보이고 있는데, 아직 가상통화가 투자대상으로 기능하는 측면에 대한 포괄적인 입법을 마련하지 아니한 우리 상황에서 미국의 사례와 함께 향후 보다 적극적인 대응방안을 마련함에 있어서 시사하는 점이 크다.

Abstract

Since the launch of the Bitcoin, the first virtual currency based upon blockchain or distributed ledger technology in 2009, numerous other virtual currencies have emerged and the novel technologies have evolved rapidly. The functions and uses of virtual currencies(“VCs”) are no longer confined to those as a medium of exchange or payment. Rather characteristics of VCs as an investment have become of greater importance. VCs are actively traded on a number of online platforms around the world and the number of retail investors seeking investment opportunities in these markets have increased dramatically over the past several years. In late 2017, CME and Cboe Futures Exchange have listed Bitcoin futures derivatives and became the world’s first federally regulated Bitcoin futures market. As the rise of the public interests in VCs for investments in the derivatives markets as well as in the spot markets, fraudulent activities have increased in these fields and in turn the demands for regulatory responses have heightened. In this Article, the author examines how the regulators in the United States have responded to those challenges, especially focusing on the approaches taken by the Commodity Futures Trading Commission(“CFTC”) under the U.S. Commodity Exchange Act(“CEA”). In Part II, this Article examines the regulatory framework regarding VCs under the CEA and the basic approaches taken by the CFTC. US law does not provide for direct comprehensive system to regulate VCs. Among other regulators at the federal or state levels(including state banking authorities, IRS, FinCEN and the SEC), the CFTC has, depending upon settings, an exclusive or concurrent regulatory power over VCs. In the Matter of Coinflip, Inc. in 2015 the CFTC first found that VCs are properly defined as commodities under the CEA. Since then, the CFTC has treated not only Bitcoin but also any VCs collectively as commodities for purposes of the CEA and has applied the long standing principles of the CEA and regulations thereunder to the VCs. The CFTC has both regulatory and enforcement jurisdiction under the CEA over derivatives on VCs traded in the U.S. market and conducts comprehensive regulatory oversight, including imposing registration requirements, standard of conduct, capital requirements and platform and system safeguards, as well as enforcement power. However, the CFTC does not have regulatory jurisdiction under the CEA over markets or platforms conducting cash or spot transactions in VCs, but does have enforcement jurisdiction thereover if there is fraud or manipulation involving VCs traded in interstate commerce. In Part III, the author goes through various enforcement actions that the CFTC has taken since the Coinflip case in 2015. Among others, she looks through a number of civil enforcement actions against Ponzi schemes or fraudulent schemes involving VCs and a few settled charges for registration violations on derivatives markets or futures commission merchants with no anti-fraud issue. In Part IV, the author points out that the CFTC has endeavored to accommodate the derivative transactions involving VCs within the regulated markets through the listing of futures contracts on VCs on the national exchanges. It also has provided for the guidelines for the future listing of new products, incorporating the comments from the futures industry. It has requested for public input on VCs mechanics and markets in preparation for the introduction of derivative contracts on other VCs beyond Bitcoin, specifically Ether. In Part V. the author highly appreciates the CFTC’s efforts to keep abreast of the VCs developments to forster technology revolution while enhancing market integrity and investor protection through thorough enforcements. She will keep a close eye on whether the CFTC will stick to its current approaches and how the federal courts and the Congress will respond to the CFTC’s actions at firsthand and, ultimately, to the technology innovation on VCs.

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