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FINANCEE
Q
U
I
T
A
B
L
E
G
R
O
W
T
H
,
F
I
N
A
N
C
E
&
I
N
S
T
I
T
U
T
I
O
N
S
N
O
T
E
SInsolvency
of
Mobile
MoneyFirmsinDeveloping
CountriesOverview
for
PolicyMakersAndresF.
Martinez,
WillPaterson,andJonathanGreenacre?
2023InternationalBank
forReconstructionand
Development/
TheWorld
Bank1818H
Street
NW,
Washington
DC20433Telephone:
202-473-1000;Internet:
This
work
is
a
product
of
the
staff
of
The
World
Bank
with
external
contributions.
The
?ndings,interpretations,
and
conclusions
expressed
in
this
work
do
not
necessarily
re?ect
the
views
of
TheWorld
Bank,
its
BoardofExecutiveDirectors,
or
thegovernments
they
represent.The
World
Bank
does
not
guarantee
the
accuracy,
completeness,
or
currency
of
the
data
includedin
this
work
and
does
not
assume
responsibility
for
any
errors,
omissions,
or
discrepancies
inthe
information,
or
liability
with
respect
to
the
use
of
or
failure
to
use
the
information,
methods,processes,
or
conclusions
set
forth.
The
boundaries,
colors,
denominations,
and
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informationshown
on
any
map
in
this
work
do
not
imply
any
judgment
on
the
part
of
The
World
Bank
concerningthelegalstatus
ofany
territoryorthe
endorsement
oracceptanceofsuchboundaries.Nothing
herein
shall
constitute
or
be
construed
or
considered
to
be
a
limitation
upon
or
waiver
oftheprivilegesandimmunitiesof
TheWorld
Bank,allof
whichare
speci?callyreserved.Rights
and
PermissionsThe
material
in
this
work
is
subject
to
copyright.
Because
The
World
Bank
encourages
disseminationof
its
knowledge,
this
work
may
be
reproduced,
in
whole
or
in
part,
for
noncommercial
purposes
aslongas
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attributiontothis
work
is
given.Any
queries
on
rights
and
licenses,
including
subsidiary
rights,
should
be
addressed
to
World
BankPublications,
The
World
Bank
Group,
1818HStreet
NW,
Washington,
DC
20433,
USA;fax:202-522-2625;
e-mail:pubrights@.Coverphoto:S.
Further
permission
requiredforreuse.>>>AcknowledgmentsThis
note
was
authored
by
Andres
F.
Martinez,
Will
Paterson
(Finance,Competitiveness
and
Innovation
Global
Practice,
World
Bank
Group),
andJonathan
Greenacre
(Boston
University).
The
authors
thank
those
who
providedcomments,
inparticular:
Holti
Banka,
Harish
Natarajan,
Ahmed
Taw?k
Rostom,Matthew
Saal
and
Gynedi
Srinivas
(World
Bank
Group);
Stefan
Staschen
andPatrick
Meagher
(CGAP);
Teresa
Rodriguez
de
las
Heras
Ballell
(UniversidadCarlos
IIIdeMadrid);andtheFCIGlobalInsolvency&
Debt
Resolution
Team.The
authors
are
also
grateful
to
World
Bank
colleagues
Jean
Pesme
(GlobalDirector,
Finance),
Mahesh
Uttamchandani
(former
Practice
Manager,
EFNFI)andNirajVerma
(actingPracticeManager,
EFNFI)for
theirguidance.>>>ContentsAcknowledgmentsOverview355Addressinsolvencyin
theregulationof
mobilemoney
toprotectusersand
theeconomy1.
The
Treatment
of
Mobile
Money
Firms
in
DomesticInsolvency
Frameworks72.
Major
Risks
to
Funds
as
a
Result
of
Insolvency2.1
Lossof
Value
Risk2.2
IlliquidityRisk1010113.
Mitigation
Tools3.1
Trust
Model12123.2
Custodian133.3
SpecializedRegimes4.
Conclusion14151618AppendixEndnotesEQUITABLEGROWTH,FINANCE&INSTITUTIONSNOTE
|
INSOLVENCY
OF
MOBILEMONEY
FIRMSINDEVELOPINGCOUNTRIES
<<<4>>>OverviewInsolvency
of
Mobile
Money
Firms
inDeveloping
CountriesThis
Note
provides
an
overview
of
the
challenges
policy
makers
may
encounterwhenamobile
money
?rm
becomes
insolvent.
Such
?rms
would
likely
be
subject
to
corporateinsolvency
laws.
Existing
mitigation
tools
meant
to
safeguard
customers’
funds
may
facelegal
and
logistical
problems
unless
they
are
coordinated
with
the
country’s
standardinsolvency
system.
Customers
may
lose
funds
and/or
not
have
quick
access
to
them.TheNote
alsohighlights
several
areas
requiringfurther
research.Address
insolvency
in
the
regulation
of
mobile
money
toprotect
users
and
the
economyE-money
services
have
become
increasingly
popular,
particularly
in
developing
countries.
These1services,
o?ered
by
providers
other
than
traditional
banks,
enable
customers
to
deposit,
store,transfer
value,
and,
in
some
cases,
convert
e-money
back
into
cash.
A
key
e-money
service
ismobile
money.ment
service,
provided
by
nonbank
entities,
that
enables
people
to
deposit,
store,
transfer,
andwithdraw
electronic
funds
back
into
cash.
The
term
mobile
money
?rm
refers
to
?rms
provid-2For
the
purposes
of
this
Note,
the
term
mobile
money
refers
to
an
electronic
pay-3ing
mobile
money.
Depending
on
the
regulatory
framework,
these
?rms
include
mobile
networkoperators(MNO),subsidiaries
of
MNOs,
and?rms
unrelatedtoan
MNO.
First
launchedin2004,mobile
money
accounts
now
number
over
one
billion
in
95
developing
countries
and
processa
combined
US$2
billion
in
transactions
daily.
The
COVID-19
pandemic
accelerated
the
use
ofmobile
money
and
other
e-money
services,
as
many
countries
lowered
transaction
costs
andincreased
limitsto
incentivize
contactless
transactions.Mobilemoney
has
greatly
bene?tted
millions
of
people
in
developing
countries.
The
servicehasbeen
especially
impactful
where
customers
have
less
access
to
traditional
bank
accounts
andmobile
phone
penetration
is
high,
providing
users
with
an
alternative
way
to
store,
transfer,
andpay
withmobilemoney.
At
thesame
time,
therapid
growthof
mobilemoney
raisessome
regula-EQUITABLEGROWTH,FINANCE&INSTITUTIONSNOTE
|
INSOLVENCY
OF
MOBILEMONEY
FIRMSINDEVELOPINGCOUNTRIES
<<<5tory
concerns.
The
service
is
bene?cial
as
long
as
customerscan
quickly
and
readily
access
their
funds.
But
what
if
a
mobilemoney
?rm
becomes
insolvent?
Will
customers
still
be
able
touse
funds
during
the
?rm’s
insolvency
process?
Do
they
risklosingfunds?tor
said
were
in
place
were
not
properly
constituted.
Shortly5after
this
case,
the
UK
established
speci?c
regulations
ad-dressingtheinsolvency
of
e-money
?rms.In
a
developing
country
where
mobile
money
plays
a
criticalrole
in
servicing
low-income
populations,
the
insolvency
of
ane-money
?rm
like
Ipagoo
could
cause
loss
or
delay
in
accessto
funds
for
those
who
need
them
the
most.
In
severe
cases,such
an
insolvency
could
damage
the
credibilityof
themobilemoney
system
and
the
economy
more
broadly.
While
we
arenot
aware
of
a
mobile
money
?rm
insolvency
in
a
developingcountr
y,
it
is
important
forpolicy
makers
to
put
in
place,
review,and,
where
necessary,
strengthen
fund
safeguarding
frame-works
that
ensure
adequate
coordination
with
applicable
in-solvency
rules.
Ideally,
policy
makers
should
review
fundsafe-guarding
rules
before
a
mobile
money
?rm
becomes
insolvent.Waiting
until
an
insolvencyoccurswould
likelycompoundlossand
disruption
for
customers.
This
is
because
there
may
be
anextensive
delay
whilecourtsand
otheractorsclarifywhatpro-tectionsare
available
and
how
e?ectively
they
operate.This
Note
provides
an
overview
for
policy
makers
of
the
risksof
not
having
robust
mechanisms
in
place
to
deal
with
mo-bile
money
?rm
insolvency.
A
broad
perception
in
the
marketis
that
most
of
the
risks
associated
with
such
insolvencies
aremitigated
by
regulatory
measures,
known
as
fund
safeguard-ing
rules,
imposed
to
protect
funds
provided
by
customers(“funds”).
The
closer
analysis
provided
here
shows
that
a
coun-try’s
policy
makers
may
conclude
that
current
risk
mitigationarrangements
may
be
inadequate,
especially
when
evaluatedin
the
context
of
the
national
corporate
insolvency
systems
un-der
which
these
arrangements
would
be
activated.
This
Notefocuses
solely
on
corporate
insolvency
issues
related
to
mobilemoney
?rms;it
does
not
analyze
other
relevant
areas,
such
as?nancial
supervision,
several
of
which
are
also
important
andcouldbe
thesubjectof
a
separate
study.Several
tools
commonly
used
to
protect
funds
can
serve
asstarting
points
for
analyzing
the
e?ectiveness
of
a
country’sfund
safeguarding
framework.
See
the
Appendix
for
a
list
ofquestions
policy
makers
can
use
to
begin
the
review
process.This
Note
does
not
provide
recommendations
on
which
toolsto
use,
nor
does
it
exhaustively
cover
all
the
issues
that
mayarise
following
the
insolvency
of
amobile
money?rm.
Further-more,a
policy
maker
should
consider
the
speci?c
operational,regulatory,
and
legal
context
of
the
country
when
examiningthe
problems
raised
below.
The
key
issues
introduced
by
thisNoteare:In
most
countries,
no
speci?c
laws
or
regulations
address
theinsolvency
of
a
mobile
money
?rm.
By
default,
then,
if
thesecompanies
become
?nancially
distressed,
their
insolvencies(including
possible
reorganization
of
viable
?rms
and
liquida-tion
of
?rms
that
cannot
be
saved)
would
fall
under
the
domes-tic
corporate
insolvency
law
of
the
country
in
which
the
mo-bile
money
?rm
is
incorporated.
Critically,
therefore,
for
each4country
in
which
mobile
money
?rms
operate,
the
insolvencyrules
may
not
fully
recognize
the
asset
segregation
of
fundsafeguarding
rules
nor
give
priority
to
mobile
money
accountholdersrelative
to
other
liabilities.
This
could
result
in
aloss
ofvalueandloss
of
liquidity
to
the
accountholders.1.
The
importance
of
reviewing
the
treatment
of
mobile
money?rms
undera
country’s
insolvencyframework;2.
Majorriskstofunds;andThe
recent
insolvency
of
the
British
e-money
?rm
Ipagoo
inwhich
United
Kingdom
electronic
money
regulations
were
putto
the
test
(explored
further
below)
illustrates
this.
Domesticcourts
addressing
the
insolvency
provided
guidance
on
fundsafeguarding
rules,?ndingthatcertain
protectionsthe
regula-3.
Key
mitigation
tools
to
safeguard
funds
and
the
possiblelimitations
of
these
tools
vis-à-vis
the
corporate
insolvencysystem.EQUITABLEGROWTH,FINANCE&INSTITUTIONSNOTE
|
INSOLVENCY
OF
MOBILEMONEY
FIRMSINDEVELOPINGCOUNTRIES
<<<61.>>>The
Treatment
of
Mobile
MoneyFirms
in
Domestic
InsolvencyFrameworksA
key
regulatory
difference
between
banking
and
mobile
money
is
the
insolvencyregimetowhich
each
issubject.
These
usually
breakdownas
follows:?
Banks
are
subject
to
special
resolution
tools
that
maintain
access
to
services
duringtimesof
?nancialdistressand
providea
special
regimefor
customers.?
Mobilemoney?rms
are
subject
toa
country’s
regularcorporate
insolvency
regime.Given
that
the
mobile
money
industry
is
relatively
new,
most
corporate
insolvency
laws
do
not6containspeci?cprovisions
regarding
the
insolvency
of
a
mobile
money?rm.
Mobile
money?rmsareuniqueamongnon-bank
businesses
in
that
they
receive
considerable
amountsof
fundspro-vided
by
customers
who
then
rely
on
the
?rms
to
provide
functionality
to
complete
day-to-daytransactions
through
services
similar
in
many
ways
to
those
provided
by
the
banking
industr
y.
Likefunds
held
in
a
bank,
a
person
can
deposit,
store,
transfer,
and,
in
some
cases,
withdraw
cashfromtheir
mobile
money
account;insomeinstances,
mobilemoney
accountspay
interest.
How-7ever,while
banks
have
specialized
insolvency
resolution
regimes
to
address
the
speci?c
needs
ofdepositors,mostmobilemoney?rms
wouldcomeundergeneralinsolvency
laws
that
donot
givespecialstatus
to
accountholderssimilar
to
that
given
to
bank
depositors.
Mobile
moneyaccountholders
are
likely
to
be
classi?ed
as
unsecured
creditors
(despite
the
issuer’s
mobile
moneyaccount
nominally
being
backed
by
cash
or
securities),
unless
structures
to
safeguard
fundsexist
and
are
enforceable
under
the
general
bankruptcy
law.
For
these
reasons,
it
is
important
thatregulators
properly
understand
the
dynamic
between
their
country’s
corporate
insolvency
systemand
whatever
mechanisms
are
in
place
to
mitigate
the
negative
impacts
on
customers
caused
bythe
insolvency
of
a
mobilemoney?rm.Despitethe
similarities
noted,banksandmobilemoney?rms
areregulateddi?erently,
including8with
respect
to
the
applicable
insolvency
regime.
In
most
countries,
default
of
a
bank
is
treatedconsiderably
di?erently
than
default
of
a
mobile
money
?rm.
Banks
are
usually
subject
to
a
rangeof
emergency
regulatory
tools
that
exempt
them
from
the
corporate
insolvency
law.
Such
tools9EQUITABLEGROWTH,FINANCE&INSTITUTIONSNOTE
|
INSOLVENCY
OF
MOBILEMONEY
FIRMSINDEVELOPINGCOUNTRIES
<<<7usuallyincludeacombinationof
depositguaranteeschemes,emergency
liquidity
assistance
facilities,
and
special
resolu-tionregimes.tional
legislation
to
safeguard
funds,
including
provisions
thatthe
funds
not
be
commingled
with
other
funds
provided
bye-money
users.
Fur
ther,
that
the
funds
“shall
be
insulated
.
.
.against
the
claims
of
other
creditors
of
the
payment
institu-tion,
in
particular
in
the
event
of
insolvency.”15
Ultimately
in
theIpagoo
case,
the
EMRs
were
“construed
as
a
means
chosento
implement
the
insulation
provisions.”16
The
Court
found
thatthe
EMRs
and
the
EU
Directives
provide
that
e-money
holdersare
granted
rights
in
priority
to
other
creditors;
e-money
hold-ers
are
“intended
to
stand
apart
from
the
normal
insolvencyregime
and
should
only
bear
the
costs
associated
with
dis-tributing
it.”17
Fur
ther,
even
though
not
necessary
for
the
?naldecision,
the
Court
found
that
the
insolvency
provisions
inthe
EMRs,
given
their
status
of
transposing
an
EU
Directive,18could
havethe
potential
to
change
the
priorities
in
the
corporateinsolvency
law.19
A
key
conclusion
from
the
case
is
important
tohighlight:
the
application
of
the
EU
rules
had
the
ultimate
e?ectof
protecting
customers
who
provided
the
funds.
Had
the
EUlegislation
not
been
applicable
to
the
Ipagoo
case,
the
solutionwould
have
been
di?erent.
It
is
likely
that
the
provisions
con-tained
in
the
UK’s
EMR
would
have
been
insu?cient
to
ensurethat
the
funds
were
su?ciently
protected
in
the
case
that
Ipa-goo
did
not
meet
the
requirement
to
segregate
those
funds—which
iswhat
happenedinpractice.While
to
date
no
major
mobile
money
?rm
has
become
insol-vent,
?rms
providing
other
e-money
services
havefailed,
dem-onstrating
the
importance
of
clarifying
fund
safeguarding
rules.One
such
e-money
?rm
is
Ipagoo
LLP
(“Ipagoo”),
the
subjectof
the
recent
England
and
Wales
Court
of
Appeal
case10
ReIpagoo
LLP
(In
Administration)(2022)
EWCACiv
302,
in
whichthe
fund
safeguarding
rules
applicable
to
e-money
were
put
tothetest.
Thecasehighlighteda
key
lesson:if
an
e-money?rmfails,
and
it
is
not
subject
to
bank
regulation,
it
will
likely
be
sub-ject
to
a
country’s
regular
corporate
insolvency
law,
exposingcustomers’
fundstoa
rangeof
risks.In
August
2019,
Ipagoo
became
insolvent
and
went
into
ad-ministration.11
The
UK
Electronic
Money
Regulations
(2011)(“EMRs”),
which
implemented
the
European
Union
ElectronicMoney
Directive,
required
Ipagoo
to
safeguard
the
funds
pro-vided
by
customers.
It
was
not
possible
for
the
Administratorsto
determine
whether
the
funds
were
properly
safeguarded,and
Ipagoo
was
likely
in
serious
non-compliance
with
theEMRs.12
OnceIpagoobecameinsolvent,
it,like
other
e-moneyproviders,
was
subject
to
the
UK’s
regular
corporate
insol-vency
regime.
The
Administrators
of
Ipagoo
asked
the
Courtfor
guidance
on
how
to
distribute
the
funds
and
whether
theEMRscreateda
statutorytrustthatwouldsegregate
the
fundsprovided
by
customers
from
other
assets
of
the
company.One
of
the
key
issues
for
the
Court
to
decide
was
whetherthe
EMRs’
insolvency
provision13
would
be
applicable,
ratherthan
the
regular
creditor
payment
priorities
established
by
thecorporate
insolvency
law.
Ultimately,
reviews
at
the
trial-
andappeals-court
levels
were
required
to
clarify
the
precise
op-eration
of
fund
safeguarding
rules,
causing
a
two-year
delaybetween
Ipagoo’s
insolvency
and
the
?nal
decision
regardingdistributionof
fundstocustomers.14Since
Ipagoo
went
insolvent,
the
UK
has
tried
to
?x
this
problemby
introducing
new
regulations
for
this
industry:
an
insolvencyprocedure
(called
“special
administration”)
for
payment
institu-tions
and
for
electronic
money
institutions,
which
is
discussedbelow.20
Many
other
countries,
particularly
in
the
developingworld,
have
not
introduced
specialized
insolvency
regimes
formobile
money
?rms
or
updated
their
basic
fund
safeguardingrules.
This
could
put
funds
atrisk.
For
example,
Kenya
and
Tan-zania,
two
countries
with
major
mobile
money
sectors,
have
notamended
their
fund
safeguarding
rules
since
2014
and
2015respectively,
despite
signi?cant
growth
of
this
service
and
itsimportance
to
the
countries’
economies.21
Although
both
Kenyaand
Tanzania
havea
range
of
protections
against
loss
of
valueand
illiquidity,
as
explained
below,
it
is
unclear
how
some
toolswilloperate
inpractice,
such
asaccelerated
fundsdispersal.The
Ipagoo
case
also
involved
two
European
Union
(EU)
di-rectives
related
to
e-money:
Electronic
Money
Directive
(EMD)(2009/110/EC)
and
the
Second
Payment
Services
Directive(PSD2)
(2015/2366/EU).
As
with
all
EU
Directives,
these
pro-visions
had
not
immediately
been
made
part
of
the
domesticlegislation
of
the
member
countries:
each
member
countryis
required
to
transpose
them
to
national
legislation.
The
e-money
Directives
required
EU
Member
States
to
establish
na-For
several
reasons,
inadequate
fund
safeguarding
ruleswould
likely
create
more
serious
problems
in
developing
coun-tries
than
the
Ipagoo
insolvency
created
in
the
UK.
First,
mo-bile
money,
by
enabling
people
to
use
it
as
a
form
of
savings,has
a
wider
functionality
than
Ipagoo’s
service.
Fur
ther,
mobileEQUITABLEGROWTH,FINANCE&INSTITUTIONSNOTE
|
INSOLVENCY
OF
MOBILEMONEY
FIRMSINDEVELOPINGCOUNTRIES
<<<8money
servicesnormallyhave
anetworkof
agents,
whichen-able
users
to
convert
mobile
money
into
cash
withouthaving
atraditional
bank
account.
In
Sub-Saharan
Africa,
15
percent
ofadults
have
used
a
mobile
money
account
to
save.22
This
is
be-cause
some
mobile
money
services
enable
customers
to
storefunds
in
their
accounts
and
even
to
obtain
interest.23
This
couldmean
that
the
insolvency
of
a
mobile
money
?rm
can
causepeopleinthesecountries
to
loseaportionof
their
longer-termsavings
inadditiontotheir
transactionfunds.the
speci?c
trust
(or
fund-separating
mechanism)
has
beenestablished.25Third,
mobile
money
plays
a
more
signi?cant
role
in
the
econo-mies
of
manydeveloping
countries
than
in
those
of
developedcountries,
to
the
point
thatthe
service
mayrepresent
a
form
of“systemic
risk.”
This
means
that
failure
of
one
or
more
mobilemoney
?rmsmay
signi?cantly
damage
the?nancialandwidereconomic
system
of
a
developing
countr
y.
For
example,
by2014,
M-Pesa
processed
66.56
percent
of
the
volume
of
na-tional
payments
in
Kenya.
Collapse
of
this
service
would
there-fore
have
a
comparatively
bigger
impact
inKenya
than
it
wouldin
jurisdictionswheremobile
money
is
less
widely
used.Whileno
mobile
money
?rm
in
a
developing
country
has
becomeinsolvent,
occasional
short-termoutages
of
e-money
services(ranging
in
duration
from
one
to
two
hours
to
three
to
four
days)have
occurred
in
several
countries,
and
each
of
these
outagesimposed
signi?cant
costs
on
the
a?ected
communities.
Theextent
of
such
costs
suggests
that
the
insolvency
of
a
majormobile
money
?rm,
which
might
cause
a
disruption
of
sever-al
years,
could
be
seriously
damaging
to
local
economies.26Second,
in
many
developing
countries,
regulatory
and
legalframeworks
for
insolvency,
and
their
implementation,
often
failto
comply
with
existing
good
international
practices,
such
asthose
set
out
in
the
World
Bank
Principles
for
E?ective
Insol-vency
and
Creditor/Debtor
Regimes.24
This
means
it
is
evenmore
di?cult
for
policy
makers
to
predict
how
a
court
and
re-lated
bodies
will
resolve
a
failing
mobile
money
?rm.
In
turn,thismeansitisdi?culttopredicthow
fund
safeguardingruleswill
operate,
particularly
regarding
the
extent
to
which
the
rulesprotect
funds.
Even
in
countries
where
the
insolvency
systemworks
well,
issues
mayarise
related
to
trust
law
or
the
way
thatEQUITABLEGROWTH,FINANCE&INSTITUTIONSNOTE
|
INSOLVENCY
OF
MOBILEMONEY
FIRMSINDEVELOPINGCOUNTRIES
<<<92.>>>Major
Risks
to
Funds
asa
Result
of
InsolvencyA
country’s
corporate
insolvency
regime
can
expose
funds
provided
by
customers
to
two
types
ofrisk:lossof
value
and
illiquidity.27
These
risks
depend
on
how
the
domestic
legalframeworkclas-si?esthecustomerswho
provided
those
funds,particularlywhetherthey
are
treatedascreditorsof
the
insolvent
debtor
or
remain
“outside”
the
corporate
insolvency
proceeding.
This
classi?ca-tion
will
depend
on
a
range
of
domestic
factors.28
However,
without
any
regulatory
mechanismsinplacethat
deal
with
thesecreditorsspeci?cally,
it
is
likely
that
mobile
money
customerswill
beclassi?ed
as
unsecured
creditors.29
The
extent
to
which
the
insolvency
regime
complies
with
goodinternational
practices
also
impacts
thescaleof
theserisks.30Manycountrieshave
implemented
mitigation
tools
(analyzed
in
Section3
below)designedto
ad-dress
some
of
the
risks.
The
discussion
in
this
section
focuses
on
the
possible
di?culties
that
theapplication
of
the
corporate
insolvency
law
could
generate
in
the
absence
of
any
mechanism
tosafeguard
the
funds
provided
by
customers.2.1
Loss
of
Value
RiskThe
mostlikely
scenario,
in
the
absence
of
speci?crulesto
prevent
it,
is
thatcustomersthatpro-vided
funds
to
the
debtor
will
be
treated
as
unsecured
creditors.
In
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