The Congressional Research Service said federal regulators have repeatedly changed their positions on whether banks may conduct crypto-related activities since 2017, as presidential administrations changed. It said Congress could reduce these shifts by legislating clear permissions or restrictions for specific activities. The report also compared versions of the CLARITY Act: the House-passed version would allow banks to use digital assets or blockchain for activities already permitted under existing law, while the Senate committee-reported version would explicitly authorize 11 categories of crypto activity, including broader underwriting and trading of digital assets.