Because of the decentralized nature of most cryptocurrencies, I don't see how a cryptocurrency-related firm could be considered to be an "issuer". Maybe it is an inaccuracy of the translation or an additional law-specific meaning of the word (similar to how a bitcoin trader is considered to be a money "transmitter" in the U.S.).
There's an article here about that bill. https://www.startupcafe.ro/afaceri/statul-ordonanta-monede-electronice-prag-emitere.htm It's in Romanian, but, especially if you use Chrome, you can get a decent translation to English.
Most important points:
1. it's not really about crypto coins, but it may apply to tokens.
2. they do talk about an issuer (I guess that if your company meets their conditions, the company can make some sort of ICO)
