The U.S. Treasury submitted a report to Congress acknowledging that cryptocurrency mixers have legitimate privacy uses and recommending legislation to freeze suspicious digital assets

The U.S. Treasury submitted a 32-page report to Congress stating that cryptocurrency mixers can be used for legitimate financial privacy purposes, allowing users to protect sensitive information such as personal wealth, business payments, or charitable donations. This stance marks a shift from its attitude when sanctioning Tornado Cash in 2022.

The report reveals that North Korean cybercriminals stole at least $2.8 billion in digital assets between January 2024 and September 2025, including $1.5 billion stolen from Bybit, and regularly used mixers for multi-step money laundering. Since May 2020, over $1.6 billion in mixer deposits have flowed into cross-chain bridges, with more than $900 million concentrated in a bridging protocol related to North Korean money laundering activities.

The report distinguishes between custodial and non-custodial mixers, noting that compliant custodial mixers can provide customer identity and off-chain transaction data, but it did not recommend imposing new restrictions on non-custodial mixers. In terms of legislative recommendations, the report urges Congress to create a digital asset-specific "freezing law" to provide safe harbor protection for financial institutions to temporarily freeze suspicious assets during short-term investigations, and suggests that Congress clarify which DeFi participants should bear anti-money laundering obligations.

The report also proposes adding a "sixth special measure" to Section 311 of the USA PATRIOT Act, authorizing the Treasury to impose bans or restrictions on specific digital asset transfers that do not involve agency banking relationships. This report was prepared based on Section 9 of the GENIUS Act signed in July 2025.