Sources checked 11 November 2026. This page records what governments, central banks, legislatures and courts have actually done with bitcoin, from primary sources only. It does not say whether any of it is wise, makes no prediction about prices or adoption, and is not investment, tax or legal advice. Holdings figures appear only where an official or official on-chain source supports them, with the date. If anything here conflicts with a linked source, the source wins.
Short answer
Nation adoption is mostly smaller and more reversible than headlines suggest. Two countries made bitcoin legal tender, and both have since rolled it back. A few states hold bitcoin: the US by executive order from forfeited coins, three US states under their own laws, El Salvador from its own reserve, and Bhutan from state mining. A few central banks are testing or planning holdings. Most governments, including the UK, engage with bitcoin by regulating firms and seizing criminal proceeds, and some, such as China, ban trading. None of this changes how a UK or US company is taxed or must account for its own bitcoin.
Five kinds of engagement
| Kind | What it means | Examples on this page |
|---|---|---|
| Legal tender | The law says bitcoin must, or may, be accepted to settle debts. | El Salvador from 2021, amended 2025; Central African Republic 2022, reversed 2023. |
| Reserve or treasury holding | A government body holds bitcoin as an asset, by purchase, mining, forfeiture or donation. | US federal order 2025; New Hampshire, Arizona and Texas laws 2025; El Salvador; Bhutan. |
| Central bank test or plan | A central bank buys a small amount outside its reserves, or plans a fund. | Czech National Bank 2025; National Bank of Kazakhstan 2025. |
| Seizure and regulation | Courts seize criminal proceeds; regulators license firms. | UK seizure of 61,000 bitcoin; UK and US firm regulation. |
| Ban | Trading and related services are declared illegal. | China, September 2021. |
For what a reserve currency is and what bitcoin would need to become one, see could bitcoin become a reserve or payments currency?. This page focuses on what nations have done.
Legal tender, and its reversal
El Salvador
El Salvador made bitcoin legal tender alongside the US dollar in 2021. In January 2025, as a prior action for a US$1.4 billion IMF Extended Fund Facility approved on 26 February 2025, it amended the Bitcoin Law: acceptance by the private sector became voluntary, the characterisation of bitcoin as a currency was removed, taxes are paid only in US dollars, and the state no longer guarantees convertibility. At the second and third reviews in October 2026, the IMF said certain performance criteria were not met, including on bitcoin accumulation, granted waivers, and said no further accumulation is envisaged beyond documented donations.
Source: IMF: Press release 25/43: IMF approves a 40 month US$1.4 billion Extended Fund Facility for El Salvador (26 February 2025), IMF: Country Report 25/58: El Salvador, request for an extended arrangement, including the Bitcoin Law amendments (PDF), IMF: Press release 26/316: second and third reviews of El Salvador's Extended Fund Facility (1 October 2026).
Holdings, from an official on-chain source. El Salvador's National Bitcoin Office publishes the addresses it says hold the reserve. On 11 November 2026 at 08:00 UTC, our sum of the office's own published data for its 20 addresses was about 7,831 BTC, and a spot check of one address against a public block explorer matched. Not verified: whether these addresses hold every coin the state controls. The office publishes them; we have not seen an audit.
The Central African Republic
The IMF reports that the Central African Republic adopted a law in April 2022 giving crypto assets legal tender status alongside the CFA franc, requiring all economic agents to accept them. After the regional central bank and other members of the monetary union raised concerns, the country amended the law in April 2023 to remove legal tender status and guaranteed convertibility.
Our judgement, not a rule: in both cases legal tender met resistance from lenders, regional partners or practical limits such as internet access. A law making bitcoin money did not, on its own, make people use it as money.
State mining and holdings
Bhutan
Bhutan's Gelephu Mindfulness City says the country chose to convert part of its surplus hydroelectric power into a long term national asset through mining bitcoin, and that the bitcoin is being set aside for the long term development of the country through the growth of the city.
Not verified: press reports give a pledge of up to 10,000 BTC and larger total holdings. We did not find a figure on the official pledge page we could open, so we do not state one. Estimates that trace Bhutan's holdings on chain come from private analytics firms, not from the government.
Central banks
In November 2025 the Czech National Bank said it had bought a USD 1 million test portfolio including bitcoin, a dollar stablecoin and a tokenised deposit, held outside its international reserves, and that it was not planning to include bitcoin in its reserves in the near future. On 30 September 2025 the National Bank of Kazakhstan said work was under way to create a state crypto reserve, to be managed by its National Investment Corporation as part of the country's sovereign reserves. The bank said the fund would launch early the following year. Not verified: whether Kazakhstan's fund has launched or what it holds.
Source: Czech National Bank: The CNB creates a test portfolio of digital assets (13 November 2025), National Bank of Kazakhstan: About creation of a state crypto reserve (30 September 2025).
Bans and the CBDC contrast
On 15 September 2021 the People's Bank of China and nine other authorities issued a notice saying virtual currencies such as bitcoin do not have the same legal status as legal tender, and that related business, including exchanging legal tender for virtual currency, is illegal financial activity and strictly prohibited. The notice is in Chinese; this summary is ours.
Central bank digital currencies are a different thing: digital money issued by the central bank itself, in the national unit. In the US, Executive Order 14178 of 23 January 2025 prohibits federal agencies from taking any action to establish, issue or promote a CBDC, except as required by law. In the UK, the Bank of England said on 4 March 2026 that no decision had been made on whether to introduce a digital pound, and that it and HM Treasury would set out next steps later in the year.
Source: Federal Register: Executive Order 14178 of 23 January 2025: Strengthening American Leadership in Digital Financial Technology, section 5 prohibition of CBDCs (90 FR 8647), Bank of England: Progress update: Digital Pound Design Phase (4 March 2026): no decision yet on whether to introduce a digital pound.
Our judgement, not a rule: a CBDC is not bitcoin adoption. It is a state money in digital form, and some governments promote one while restricting bitcoin.
Choose your country for what the state has done and what it means for a company there.
UK: what the state has done
The UK's largest bitcoin position comes from crime, not policy. The Metropolitan Police said on 29 September 2025 that it had seized 61,000 bitcoin in a money laundering investigation linked to a large fraud in China. The Crown Prosecution Service announced on 11 November 2025 that the two defendants had been jailed, and has said that the bitcoin is subject to civil recovery proceedings in the High Court, which can return assets to victims or pass them to the state.
Source: Metropolitan Police: Two people convicted following world's largest crypto seizure: 61,000 bitcoin seized (29 September 2025), Crown Prosecution Service: Two people imprisoned for their key roles in a largescale money laundering case (11 November 2025), Crown Prosecution Service: How we prosecuted Europe's biggest crypto money laundering case: the 61,000 bitcoin are subject to civil recovery proceedings in the High Court.
On 28 May 2025 a tender notice published on behalf of the Home Office sought a single supplier framework for the secure storage of seized cryptoassets during legal proceedings, so that assets can be returned to owners, returned to victims or sold. Not verified: who, if anyone, has been appointed, and whether any seized bitcoin has been sold. Our judgement, not a rule: we have found no UK government announcement of a bitcoin reserve.
UK: what it means for a company
- Tax is unchanged. HMRC does not treat cryptoassets as money or currency, and a company's disposals are usually chargeable gains within Corporation Tax, whatever any government holds.
- Regulation is about firms, not holders. The FCA regime for cryptoasset activities starts on 25 October 2027. See the 2027 regime.
- Accounts are unchanged. See FRS 102 versus FRS 105.
- Court sales are public. If seized bitcoin is ever sold, it will be reported. It is not a reason to change a treasury policy.
US: what the state has done
Executive Order 14233 of 6 March 2025 established a Strategic Bitcoin Reserve, capitalised with bitcoin held by the Treasury that was finally forfeited in criminal or civil proceedings. The order says bitcoin in the reserve shall not be sold, and allows strategies for acquiring more only if they are budget neutral. Not verified: we have not found an official published figure for the reserve's holdings.
Source: The White House: Executive Order 14233: Establishment of the Strategic Bitcoin Reserve and United States Digital Asset Stockpile (6 March 2025), Federal Register: Executive Order 14233 as published (90 FR 11789, 11 March 2025).
| State | Law | What it does |
|---|---|---|
| New Hampshire | HB 302, signed 6 May 2025 | Lets the state treasurer invest up to 5 percent of public funds in precious metals and in digital assets above a $500 billion average market capitalisation. |
| Arizona | HB 2749, approved 7 May 2025 | Creates a Bitcoin and Digital Assets Reserve Fund from airdrops, staking rewards and interest earned on unclaimed digital assets held by the state. |
| Texas | SB 21, effective 20 June 2025 | Creates the Texas Strategic Bitcoin Reserve, run by the comptroller, with an advisory committee (named 28 May 2026) and a report due by 31 December of each even numbered year. |
Source: New Hampshire General Court: HB 302 (2025): state treasury may invest in precious metals and digital assets; signed 6 May 2025, Chapter 4, Arizona Legislature: HB 2749, Laws 2025 Chapter 150: Bitcoin and Digital Assets Reserve Fund; approved 7 May 2025 (PDF), Texas Legislature: SB 21 (89th Legislature), enrolled: Texas Strategic Bitcoin Reserve, Texas Legislature: SB 21 actions: signed by the Governor and effective immediately, 20 June 2025, Texas Comptroller of Public Accounts: Strategic Bitcoin Reserve Advisory Committee named, and custody and liquidity RFP announced (28 May 2026).
Not verified: press reports say Texas bought a bitcoin exchange traded fund as a placeholder in late 2025. We found no official statement of state holdings; the first Texas report is due by 31 December 2026. More detail is in the reserve currency guide.
US: what it means for a company
- Tax is unchanged. The IRS treats bitcoin as property. Federal or state reserves do not change how a company is taxed on bitcoin it holds, receives or spends.
- State laws are about public funds. A reserve law lets a state hold bitcoin; it does not make bitcoin money in that state.
- No US CBDC. Federal agencies may not promote one under Executive Order 14178. Dollar payments innovation runs through regulated stablecoins.
- Accounts are unchanged. See US accounting under ASU 2023-08.
Source: IRS: Notice 2014-21: virtual currency is treated as property for federal tax purposes (PDF).
Scenarios, including reversal
| Scenario | What it would look like | What it would mean for a small company |
|---|---|---|
| Slow spread | A few more states or central banks hold small amounts, mostly from seizures, mining or tests. | Little change. Tax, accounts and custody duties stay the same. |
| Reserve race | Several large states buy bitcoin openly for reserves. | Banks, auditors and insurers may become more familiar with bitcoin. The company's own policy limits still apply. |
| Sales of seized coins | Governments sell seized or forfeited bitcoin through courts and frameworks. | No direct effect on the company. It is not a signal to buy or sell. |
| Reversal | Laws are repealed, as legal tender was in El Salvador and the Central African Republic, or a new administration ends a reserve. | No direct effect on a company that held bitcoin for its own reasons under a written policy. |
| Restriction | More countries ban trading or make banking harder. | Harder banking and fewer providers. Keep records good enough to show what was held and why. |
Our judgement, not a rule: we do not attach probabilities or dates. A company's policy should work in every row.
Common misconceptions
- "El Salvador still requires shops to accept bitcoin." Not since the January 2025 amendments, which made acceptance voluntary.
- "The US government is buying bitcoin." The federal reserve is built from forfeited coins, and new purchases are allowed only if budget neutral.
- "The UK has a bitcoin reserve." The UK holds seized bitcoin subject to court proceedings. We have found no reserve announcement.
- "Nation adoption changes my company's tax." It does not, in the UK or the US.
- "A CBDC is a government bitcoin." A CBDC is central bank money in the national currency.
- "Holdings figures in the news are official." Most are estimates by analytics firms. This page states a figure only where the state publishes the data.
Common questions
Which countries have bitcoin as legal tender today?
The two countries that gave it legal tender status, El Salvador and the Central African Republic, have since removed the key features, as the IMF reports. We have not found another country that has made bitcoin legal tender.
How much bitcoin do governments hold?
Only some publish data. El Salvador publishes addresses; the US, the UK and Bhutan do not publish an official total we could find. Treat other totals as estimates.
Should a company follow what governments do?
This page does not say. A company should decide on its own position, size any holding under the sizing guide, and keep it in a 2 of 3 multisig or with a regulated custodian.
Will more nations adopt bitcoin?
No one knows. The record so far shows moves in both directions.
Read next
- Could bitcoin become a reserve or payments currency?, what would have to be true.
- Adoption timeline, protocol, accounting and regulation dates.
- Small company bitcoin treasuries, what companies hold.
- UK crypto regime from 2027, the FCA rules.
- Company bitcoin tax, UK and US.
- Treasury policy, rules that work whatever governments do.
Sources
Primary sources only. Each link was checked on 11 November 2026. Rules change, so confirm the current version with your adviser.
- IMFPress release 25/43: IMF approves a 40 month US$1.4 billion Extended Fund Facility for El Salvador (26 February 2025)
- IMFCountry Report 25/58: El Salvador, request for an extended arrangement, including the Bitcoin Law amendments (PDF)
- IMFPress release 26/316: second and third reviews of El Salvador's Extended Fund Facility (1 October 2026)
- El Salvador National Bitcoin Office (ONBTC)Published reserve addresses and balances, public API (read 11 November 2026, 08:00 UTC)
- IMFCountry Report 23/156: Central African Republic, selected issues, including the crypto law and its amendment (PDF)
- Gelephu Mindfulness City, BhutanOur Bitcoin Pledge (bitcoin mined with surplus hydroelectric power, set aside for the development of the city)
- Czech National BankThe CNB creates a test portfolio of digital assets (13 November 2025)
- National Bank of KazakhstanAbout creation of a state crypto reserve (30 September 2025)
- People's Bank of China and nine other authoritiesNotice on further preventing and resolving the risks of virtual currency trading and speculation, Yinfa [2021] No. 237 (15 September 2021, in Chinese)
- Federal RegisterExecutive Order 14178 of 23 January 2025: Strengthening American Leadership in Digital Financial Technology, section 5 prohibition of CBDCs (90 FR 8647)
- Bank of EnglandProgress update: Digital Pound Design Phase (4 March 2026): no decision yet on whether to introduce a digital pound
- Metropolitan PoliceTwo people convicted following world's largest crypto seizure: 61,000 bitcoin seized (29 September 2025)
- Crown Prosecution ServiceTwo people imprisoned for their key roles in a largescale money laundering case (11 November 2025)
- Crown Prosecution ServiceHow we prosecuted Europe's biggest crypto money laundering case: the 61,000 bitcoin are subject to civil recovery proceedings in the High Court
- Find a Tender (GOV.UK)BLC0218 Crypto Capabilities: Crypto Storage and Realisation Framework, on behalf of the Home Office (published 28 May 2025)
- HMRCCRYPTO41050: Corporation Tax, introduction (cryptoassets are not money or currency; disposals are usually chargeable gains)
- The White HouseExecutive Order 14233: Establishment of the Strategic Bitcoin Reserve and United States Digital Asset Stockpile (6 March 2025)
- Federal RegisterExecutive Order 14233 as published (90 FR 11789, 11 March 2025)
- New Hampshire General CourtHB 302 (2025): state treasury may invest in precious metals and digital assets; signed 6 May 2025, Chapter 4
- Arizona LegislatureHB 2749, Laws 2025 Chapter 150: Bitcoin and Digital Assets Reserve Fund; approved 7 May 2025 (PDF)
- Texas LegislatureSB 21 (89th Legislature), enrolled: Texas Strategic Bitcoin Reserve
- Texas LegislatureSB 21 actions: signed by the Governor and effective immediately, 20 June 2025
- Texas Comptroller of Public AccountsStrategic Bitcoin Reserve Advisory Committee named, and custody and liquidity RFP announced (28 May 2026)
- IRSNotice 2014-21: virtual currency is treated as property for federal tax purposes (PDF)
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This is general information and education only. It is not financial, investment, tax, accounting, legal or regulatory advice, and it is not a recommendation to buy, sell or hold bitcoin or any other asset. It does not take account of your circumstances or those of your company. You must obtain your own official professional advice to confirm this information is correct before acting on it.
Rules change. This information is correct to our understanding at the last-reviewed date, but it may be incomplete or out of date, and official sources take precedence. Bitcoin is volatile. A company that buys it could lose some or all of the money it puts in.
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