@DnT
You mentioned that different agencies will likely define Bitcoin in different ways and I agree with you. What do you think the correct definition, or should I say most favorable definition, of Bitcoin is and do you see a way of presenting that definition to different departments (like a letter campaign) to help speed along the correct legal perception of Bitcoin?
Well that is complicated and I don't want to derail this thread. The issue with FinCEN is that they took the easy way out and as a result created a regulatory mess. Which of these doesn't fit.
Company trades Bullion for USD or USD for Bullion. Buyer <---> Company
Company trades EUR for USD or USD for EUR. Buyer <----> Company
Company trades BTC for USD or USD for BTC. Buyer <----> Company
Company takes USD (or other monetary value) from Party A and at Party A direction delivers the USD (or other monetary value) to Party B. Party A----> Company ----> Party B
All these are regulated activities but the first two are NOT money transmitters. The first is Bullion Dealer and the second is a dealer in foreign exchange. The lack of MT classification is great for these industries because MT is the most byzantine mess of conflicting state and federal regs. The last example is a the classic Money Transmitter (think Western Union). It is important to realize that generally speaking "payments" are not money transmission. If your employer gives you a paycheck (or ACH) that is not money transmission. If you use a bank wire to pay a bullion dealer who ships you some gold that is not money transmission. If you make monthly contributions to your IRA by ACH withdrawal from your checking account to your brokerage account that is not money transmission.
Generally speaking money tranmission involves (not lawyer terms) "moving someone ELSES money". If your employer uses a payroll company and provides funds and instructions (pay QA $10,000 monthly into this account) the Payroll company is a money transmitter. If you take $500 cash to Western Union and "send" (although your money never moves) it to your friend in Virginia who picks it up at a WU location that is money transmission. The $500 isn't WU it is yours, WU is just moving it for you.
Now look at the BTC example above. I would argue trading/exchanging BTC for USD has more in common with trading/exchanging Gold for USD or trading/exchanging EUR for USD. FinCEN however couldn't make it "fit" in those classifications. Bullion dealers specifically name precious metals and Dealers in Foreign currency specifically define "foreign currency".
The only category that could possibly fit, in the sense of round peg and square hole but we have this sledgehammer is Money Transmitter. Of course that opens up a nightmarish world of bureaucracy at the state level. Honestly there is no worse classification. It is cheaper and faster to form a new credit union (or buy an existing failing one) then becomes registered as MT in all states.
So I guess I answered what it shouldn't be. The reality is no existing MSB laws properly cover what Bitcoin is. In an optimal world regulators would have gone to congress and asked them to expand the scope of their authority to cover virtual currencies. FinCEN then could either have expanded the "Dealer in Foreign Currency" category to also cover virtual currencies, "Dealer in Currency" or created an entirely new category (there are 6 classes of MSB, no reason it couldn't be 7).
For the record this is the approach that regulators in Canada have taken. They indicated that no existing MSB regs cover Bitcoin brokers/traders/exchanges. This isn't to say they don't see the new for regulation but rather the existing regs don't cover it and new regs will need to be written.