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Reserve Bank of Australia Commences Review of Payments System Regulation
On June 25, 2026, the Reserve Bank of Australia (RBA) commenced its Review into Payments System Regulation and released an Issues Paper inviting stakeholder views on which payments policy issues should be prioritised. The review follows amendments to the Payment Systems (Regulation) Act 1998 that expanded the legislation's coverage to additional payment systems and their participants.
The RBA is examining potential regulatory concerns arising from significant innovation and change in Australia's payments landscape. While these developments offer potential benefits—including greater convenience, improved safety, new market entrants, and lower costs for end users—they may also create risks for competition, efficiency, and financial safety. The Issues Paper identifies several key areas for consultation: merchant choice of payment methods and providers; account-to-account payments and their competition with card payments; mobile wallets, non-designated card networks, and buy now, pay later services; and cryptography and fraud prevention. The review aims to ensure the RBA's payments system regulation continues to promote the public interest.
Stakeholders can submit written responses to the Issues Paper by August 7, 2026. The RBA will use evidence gathered through this consultation to prioritise issues and determine whether regulatory action is warranted and what form it should take. The RBA intends to publish a list of regulatory priorities by the end of 2026 and commence further consultation on prioritised issues by mid-2027.
REFERENCES:
Reserve Bank of Australia Media Release 2026-17, "Review of Payments System Regulation" (June 25, 2026): https://www.rba.gov.au/media-releases/2026-06-25-review-of-payments-system-regulation.html
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Reserve Bank of Australia Commences Review of the Payments System Regulation
On June 25, 2206, the Reserve Bank of Australia (RBA) opened a broad review of payments system regulation in the form of an issues paper. The paper seeks stakeholder evidence on whether the RBA should prioritise further regulatory action across parts of the payments ecosystem. The review follows amendments to the Payment Systems (Regulation) Act 1998 made in December 2025, which expanded the coverage of the RBA’s payments regulatory powers to additional payment systems and participants.
The RBA’s focus is on whether regulation is needed to promote competition, efficiency and financial safety in a payments market that is changing quickly through mobile wallets, online payments, account-to-account payments, integrated platforms, tokenisation, Buy Now Pay Later (BNPL) and AI-enabled payments.
The topics covered under this paper are:
1. Merchant choice and least-cost routing: The RBA is exploring whether merchants have enough control over which payment methods, payment providers and debit networks are used.
2. Integrated platforms and bundled payment services: The RBA is examining whether large e-commerce and point-of-sale platforms restrict merchant choice by bundling payments with other services. The concern is that platforms may favour their own or preferred payments provider, make it harder or more expensive to use alternative PSPs, or create switching barriers for merchants.
3. Tokenisation and switching barriers: The paper recognises that tokenisation improves card-payment security by replacing sensitive card numbers with tokens, but says token portability remains a problem. Tokens are often tied to a specific merchant, PSP or gateway, which can make it hard for merchants to switch PSPs without asking customers to re-enter card details. The RBA is asking whether further regulatory action is needed to improve token portability and reduce barriers to switching.
4. AI agents in e-commerce payments: The RBA flags AI agents as an emerging payments issue. Its concern is that AI-enabled purchasing tools could choose payment methods or card networks in ways that affect merchant costs, routing choice, liability, disputes and fraud risk. The paper is exploratory, but this is notable because it brings agentic commerce into the payments regulatory perimeter discussion.
5. Mobile wallets: The RBA is considering whether mobile wallet providers raise competition or efficiency concerns. Issues include access to NFC technology, mobile wallet fees, contract terms that prevent fee disclosure, and possible restrictions on issuers developing or steering customers to competing payment methods. The paper also notes that mobile wallets could support innovation, including future in-person account-to-account payments.
6. Non-designated card networks: The review considers whether card networks outside the RBA’s current designation framework should be regulated. This includes American Express, as a three-party network, and other non-designated networks such as JCB and UnionPay. TBuy Nhese networks are not subject to the same interchange regulation as designated four-party schemes, which may affect merchant costs and competition.
7. BNPL: The RBA is asking whether there is a case for payments-specific regulation of buy now, pay later providers. Concerns include higher merchant fees compared with cards, market concentration, no-surcharge rules, and limited transparency of merchant fees.
8. Account-to-account payments: The paper looks at the future of A2A payments, including Bulk Electronic Clearing System (BECS) and the New Payments Platform. The RBA highlights access issues for smaller institutions and non-bank PSPs, the need for standardisation and interoperability, and whether A2A payments can compete more effectively with cards in online and in-person retail settings. This is linked to the broader work on the future of BECS, after AusPayNet removed the previous 2030 target date for BECS decommissioning.
9. Cryptography and card fraud: The RBA is also looking at payments safety and resilience. It raises the need to strengthen cryptography because of advances in computing, including future quantum-computing risks. The RBA is asking whether stronger authentication should be considered for overseas merchant transactions.
Submissions are due by 7 August 2026. The RBA expects to publish non-confidential submissions by the end of August 2026, engage with stakeholders in August and September 2026, publish regulatory priorities by the end of 2026, consult on prioritised issues by mid-2027, and announce conclusions in 2028.