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LABS
Glossary

L1 Governance

L1 governance is the formal process for modifying the core consensus rules and parameters of a base layer blockchain, such as Bitcoin or Ethereum.
Chainscore © 2026
definition
BLOCKCHAIN FUNDAMENTALS

What is L1 Governance?

L1 Governance refers to the formal processes and mechanisms by which changes to a blockchain's core protocol—its Layer 1 (L1) consensus rules and economic parameters—are proposed, debated, and implemented.

L1 Governance is the system for managing the foundational rules of a blockchain network, including its consensus mechanism (e.g., Proof-of-Work or Proof-of-Stake), block size, gas fees, and monetary policy. This is distinct from L2 or application-layer governance, which manages individual smart contracts or scaling solutions built on top of the base chain. The primary goal is to enable the network to evolve and upgrade in a decentralized, transparent, and secure manner, avoiding contentious hard forks that can split the community.

Common governance models include on-chain governance, where token holders vote directly on proposals using their staked assets (e.g., Cosmos, Tezos), and off-chain governance, where decisions emerge from community discussion, developer consensus, and client implementation (historically seen in Bitcoin and Ethereum). Hybrid models also exist. Key components are the governance token, which confers voting rights; formal improvement proposal processes like Bitcoin's BIPs or Ethereum's EIPs; and clearly defined execution paths for implementing approved changes.

The challenges of L1 governance are significant, often described as a trilemma balancing decentralization (broad participation), security (resistance to manipulation), and efficiency (timely decision-making). For example, low voter turnout can lead to plutocracy, where large token holders dominate. Successful governance requires robust social consensus alongside technical mechanisms, as seen in Ethereum's transition to Proof-of-Stake, which involved years of research, community testing, and a coordinated multi-client upgrade.

key-features
MECHANISMS

Key Features of L1 Governance

L1 (Layer 1) governance refers to the formal processes by which changes to a blockchain's core protocol—its consensus rules, economic parameters, and feature set—are proposed, debated, and implemented.

01

On-Chain Governance

A system where governance proposals and voting are executed directly on the blockchain via smart contracts. Votes are typically weighted by a user's stake in the native token (e.g., staking or delegation). Key characteristics include:

  • Transparency: All proposals and votes are immutably recorded on-chain.
  • Automated Execution: Approved proposals can trigger automatic code upgrades.
  • Examples: Cosmos (Prop #XYZ), Tezos (on-chain upgrades).
02

Off-Chain Governance

A social coordination process where protocol changes are discussed and decided through informal channels before being implemented by core developers. This is the dominant model for networks like Bitcoin and Ethereum. It involves:

  • Discussion Forums: Proposals are debated on platforms like GitHub, forums, and community calls.
  • Rough Consensus: Decisions are made based on broad community and developer agreement.
  • Client Implementation: Node operators must voluntarily upgrade their software to adopt changes.
03

Governance Tokens

Native digital assets that confer voting rights within a protocol's governance system. Holding these tokens is the primary mechanism for participating in on-chain governance. Their functions include:

  • Voting Power: Voting weight is often proportional to the number of tokens staked or delegated.
  • Proposal Submission: A minimum token balance is typically required to submit a governance proposal, preventing spam.
  • Value Accrual: The token's value is partly derived from its utility in steering the protocol's future.
04

Forking as Governance

The ultimate governance mechanism, where dissenting community members create a new, incompatible version of the blockchain. This is a credible threat that incentivizes compromise. There are two main types:

  • Soft Fork: A backward-compatible upgrade; non-upgraded nodes still see the chain as valid.
  • Hard Fork: A non-backward-compatible change that creates a permanent divergence in the chain (e.g., Ethereum → Ethereum Classic, Bitcoin → Bitcoin Cash).
05

Delegated Voting

A system where token holders can delegate their voting power to representatives or validators who vote on proposals on their behalf. This is common in Delegated Proof-of-Stake (DPoS) and liquid democracy models. It enables:

  • Scalability: Reduces voter apathy by allowing experts to manage complex proposals.
  • Specialization: Delegates can develop deep expertise in protocol governance.
  • Liquid Democracy: Delegators can override their delegate's vote on specific issues or re-delegate at any time.
06

Treasury & Grants Management

A core function of L1 governance is the allocation of the protocol's community treasury, a pool of funds (often from transaction fees or inflation) used to fund ecosystem development. Governance oversees:

  • Grant Proposals: Teams submit proposals requesting funding for development, marketing, or research.
  • Budget Approval: Token holders vote to approve or reject treasury expenditures.
  • Examples: Polkadot's Treasury, Cosmos Community Pool. This aligns incentives by directly funding public goods that benefit the network.
how-it-works
BLOCKCHAIN GOVERNANCE

How L1 Governance Works

Layer-1 governance refers to the formal processes and mechanisms by which changes to a blockchain's core protocol—its consensus rules, economic parameters, and fundamental features—are proposed, debated, and implemented.

L1 governance is the on-chain or off-chain framework that determines how a blockchain evolves. It addresses critical questions: Who can propose upgrades? How are decisions made? Who gets to vote? The goal is to manage protocol upgrades (like Ethereum's EIPs or Bitcoin's BIPs), treasury funds, and critical parameters (e.g., block size, gas fees) in a transparent and legitimate manner, avoiding contentious hard forks. Without effective governance, blockchains risk stagnation or chaotic splits.

Governance models vary widely across major networks. Bitcoin employs a largely off-chain, rough consensus model where miners, node operators, developers, and users signal support through social coordination and client adoption. Ethereum uses a hybrid model: off-chain discussion among core developers and researchers, with on-chain execution of upgrades via a multisig contract controlled by trusted entities. In contrast, delegated proof-of-stake (DPoS) chains like EOS or on-chain governance systems like Cosmos and Tezos formalize voting directly into the protocol using native tokens.

The core mechanisms of on-chain governance typically involve a proposal lifecycle. First, a governance proposal is submitted, often requiring a deposit. Token holders then vote, with voting power usually proportional to their stake. If the proposal passes predefined thresholds (e.g., quorum, majority), it is automatically scheduled for execution by the network's validators. This creates a direct feedback loop between stakeholders and protocol development, but also introduces risks like voter apathy and plutocracy, where the wealthiest holders exert disproportionate influence.

Key challenges in L1 governance include balancing decentralization with efficiency, ensuring broad participation to avoid low voter turnout, and protecting against malicious proposals. Solutions like quadratic voting, futarchy (decision markets), and conviction voting are explored to improve these systems. The governance model is a fundamental social and technical layer that ultimately defines who controls the blockchain's future and how resilient it is to internal conflict.

COMPARISON

L1 Governance vs. L2/Application Governance

A comparison of governance mechanisms at the base layer (L1) versus those on rollups or application-specific chains (L2/App).

Governance FeatureLayer 1 (e.g., Ethereum, Solana)Layer 2 / Application (e.g., Optimism, Arbitrum, dApp DAO)

Governance Scope

Entire network protocol and consensus rules

Specific rollup/chain execution, sequencer logic, or application parameters

Upgrade Mechanism

Hard forks or on-chain governance (e.g., token voting)

Smart contract upgrades, often via a multisig or DAO

Native Token Role

Primary governance and security token (e.g., ETH, SOL)

May have a dedicated governance token or rely on the L1 token

Finality & Security Source

Self-contained; derived from its own validators/proof-of-work

Derived from and secured by the underlying L1

Typical Decision Speed

Slow (weeks/months for protocol changes)

Fast (days/weeks for execution layer changes)

Exit Rights / Forkability

Users can fork the chain if governance fails

Users can force withdrawals to L1 via escape hatches or fraud proofs

Primary Stakeholders

Broad: miners/validators, developers, token holders

Focused: application users, sequencer operators, bridge governors

examples
COMPARATIVE ANALYSIS

Examples of L1 Governance Models

Layer-1 blockchains implement diverse governance models to manage protocol upgrades, parameter changes, and treasury allocation. These models define how decision-making power is distributed among stakeholders.

04

Futarchy

A prediction market-based model where governance decisions are made based on the expected outcome of a proposal, as signaled by market prices. Voters bet on future metrics (e.g., token price) to determine policy.

  • Key Feature: Uses market mechanisms to aggregate information and assess the potential value of a decision.
  • Example: While not fully implemented at the L1 level, Tezos has explored futarchy concepts. It is more commonly a theoretical framework discussed in decentralized governance.
  • Trade-off: Conceptually complex and requires robust, manipulation-resistant prediction markets.
05

Multisig Council Governance

A model where control over key protocol parameters or a treasury is managed by a council or committee whose actions require a multi-signature (multisig) approval.

  • Key Feature: Explicit, known set of entities (often foundational teams or elected representatives) with shared custody.
  • Example: Early Polygon (Matic) governance relied on a multisig council of 5/8 signers for treasury management and emergency upgrades. Many L2s start with this model before decentralizing.
  • Trade-off: High-trust, permissioned model that is more centralized but operationally efficient for young networks.
06

Hybrid Models

Protocols that combine elements of on-chain and off-chain governance to balance efficiency, security, and decentralization.

  • Key Feature: Leverages different mechanisms for different types of decisions (e.g., parameter tweaks vs. core upgrades).
  • Example: Tezos uses on-chain voting for upgrades but its development is driven off-chain by research teams and bakers (validators). Cardano employs a combination of ballot voting for funding proposals (Project Catalyst) and off-chain research (IOG, Cardano Foundation).
  • Trade-off: Aims to capture the benefits of multiple systems but can increase complexity.
key-stakeholders
PARTICIPANTS

Key Stakeholders in L1 Governance

Layer-1 blockchain governance is a multi-stakeholder process. This section defines the primary actors who propose, vote on, and implement changes to the network's core protocol.

02

Validators / Miners

Validators (in Proof-of-Stake) and miners (in Proof-of-Work) are the network operators who run the consensus mechanism. They are the ultimate arbiters of governance by choosing which software version to run.

  • Their client adoption determines if a protocol upgrade (hard fork) is successfully activated.
  • In many PoS systems like Ethereum, they also vote directly on-chain for certain parameter changes.
  • Their economic stake (locked ETH or hashrate) aligns their incentives with network security and stability.
03

Token Holders

Token holders are the owners of the network's native cryptocurrency (e.g., ETH, ADA, ATOM). They participate in governance primarily through on-chain voting or delegation.

  • They vote on treasury fund allocation, parameter adjustments, and sometimes protocol upgrades.
  • In delegated systems (e.g., Cosmos, Tezos), they delegate voting power to validators or professional delegates.
  • Their influence is proportional to their stake, leading to models described as token-weighted plutocracy.
04

Governance Token Delegates

Delegates (or Protocol Politicians) are individuals or entities who actively participate in governance debates and vote on behalf of token holders who delegate to them. This role is formal in systems like Compound or Uniswap, and informal in many L1s.

  • They analyze proposals, publish voting rationale, and represent a constituency.
  • They help overcome voter apathy by allowing less active token holders to participate.
  • Their performance and alignment are often tracked through delegate platforms and dashboards.
05

Node Operators (Non-Validating)

Node operators run full nodes or archive nodes that verify transactions and blocks but do not participate in consensus (e.g., RPC endpoint providers, exchanges, wallet services).

  • They exert governance power through client diversity—their choice of software client affects network resilience and can signal support for upgrades.
  • They are critical for enforcing network rules; if they reject a validator-produced block, it is effectively orphaned.
  • Their operational requirements (hardware, bandwidth) are a practical constraint on protocol changes.
06

Ecosystem Foundations & Grants DAOs

Foundations (e.g., Ethereum Foundation, Cardano Foundation) and Grants DAOs (e.g., Polygon Community Treasury, Optimism Grants Council) are entities that manage substantial ecosystem resources.

  • They fund core development, research, and public goods that benefit the protocol.
  • They often have significant sway in setting the initial governance agenda and coordinating upgrades.
  • While sometimes criticized for centralization, their role is often to bootstrap and support the network until fully decentralized governance matures.
security-considerations
L1 GOVERNANCE

Security Considerations & Challenges

The security of a Layer 1 blockchain is intrinsically linked to its governance model. These cards detail the critical attack vectors and systemic risks that arise from how protocol changes are proposed, voted on, and implemented.

01

Voter Apathy & Low Participation

A fundamental security risk where a small, potentially unrepresentative minority of token holders controls governance outcomes. This can lead to proposals passing with minimal scrutiny, enabling attacks like proposal spam or malicious upgrades. Low turnout increases the influence of whale voters and makes the chain vulnerable to governance capture.

02

Governance Token Concentration

Excessive ownership of governance tokens by a few entities (e.g., founding teams, VCs, centralized exchanges) creates centralization risks. This concentration can lead to:

  • De facto control over all protocol decisions.
  • Collusion among large holders to pass self-serving proposals.
  • Vote buying or bribery markets, where token voting power is rented to the highest bidder.
03

The 51% Attack (Governance Variant)

Beyond hash power, an attacker can attempt to acquire a majority of governance tokens to forcibly pass a malicious upgrade. This could include:

  • Redirecting block rewards or transaction fees.
  • Whitelisting invalid transactions.
  • Changing consensus parameters to weaken the chain. Defenses include time-locks on execution, multisig guardians, and social consensus forks.
04

Implementation & Upgrade Risks

The process of enacting governance decisions introduces technical vulnerabilities. A passed proposal must be coded and deployed, which risks:

  • Buggy code in the upgrade contract itself.
  • Timing attacks exploiting the window between vote conclusion and execution.
  • Lack of client diversity, where a single buggy implementation client can cause a chain split or halt.
05

Vote Delegation & Plutocracy

Systems that allow token holders to delegate voting power to representatives can create shadow plutocracies. Security issues include:

  • Uninformed or malicious delegates wielding disproportionate power.
  • Liquid democracy models where delegation can be changed instantly, enabling rapid power shifts.
  • Sybil attacks on delegate reputation systems.
06

Social Consensus & Chain Forks

When governance fails or is perceived as illegitimate, the ultimate security backstop is a social consensus fork. This is a contentious process where:

  • The community splits, creating two competing chains.
  • Economic value and network effects are divided.
  • Replay attacks and token duplication create confusion and risk for users and applications.
evolution
FROM BITCOIN TO MODULAR NETWORKS

Evolution of L1 Governance

The governance of Layer 1 (L1) blockchains has evolved from informal social consensus to sophisticated, on-chain mechanisms that directly manage protocol upgrades and treasury allocation.

The evolution of L1 governance traces the shift from off-chain, informal processes to formalized, on-chain systems for proposing, voting on, and implementing changes to a blockchain's core protocol. Early networks like Bitcoin and Ethereum relied on off-chain governance, where decisions emerged from community discussion, developer consensus, and miner signaling—a process often described as a rough social consensus. This model, while decentralized, could be slow, opaque, and prone to contentious hard forks when consensus failed, as seen with Bitcoin Cash and Ethereum Classic.

The next major phase introduced on-chain governance, pioneered by networks like Tezos and later adopted by Cosmos and Polkadot. Here, token holders vote directly on protocol upgrade proposals using their staked tokens, with approved changes automatically deployed by the network's code. This creates a binding, self-amending ledger that formalizes decision-making. Key mechanisms include proposal submission deposits, delegated voting, and predefined voting periods and quorums, aiming for transparency and efficiency but raising concerns about voter apathy and plutocracy (rule by the wealthiest holders).

Modern governance models explore hybrid and specialized approaches. Delegated Proof-of-Stake (DPoS) systems, like EOS and early Tron, use elected representatives to vote on behalf of token holders, trading some decentralization for speed. Futarchy, a theoretical model proposed for blockchain governance, would use prediction markets to make decisions based on projected outcomes. Furthermore, the rise of modular blockchains (e.g., Celestia, EigenLayer) and Layer 2 networks has complicated governance, creating multi-layered systems where sovereignty may be split between a settlement layer, a data availability layer, and execution environments, each with its own governance concerns.

FAQ

Common Misconceptions About L1 Governance

Layer-1 blockchain governance is often misunderstood. This section clarifies key concepts, debunks myths, and explains the technical realities of how protocol changes are proposed, debated, and enacted.

L1 governance is the formal process for proposing, deciding on, and implementing changes to a blockchain's core protocol rules, such as its consensus mechanism or transaction fee structure. It typically involves a multi-stage process: a governance proposal is submitted (often requiring a stake of tokens), the community debates it on forums and through off-chain signaling, and a final on-chain vote is held where token holders cast weighted votes. If the vote passes, the changes are either automatically enacted via an upgrade mechanism (like Ethereum's EIP process culminating in a hard fork) or implemented by core developers. This process is distinct from managing a decentralized application (dApp) on top of the chain.

L1 GOVERNANCE

Frequently Asked Questions (FAQ)

Essential questions and answers about the core rules, upgrade mechanisms, and decision-making processes that define a Layer 1 blockchain.

L1 governance is the formal process by which changes to a blockchain's core protocol—its consensus rules, economic parameters, and fundamental features—are proposed, debated, and implemented. It works through a structured framework where stakeholders, typically token holders or delegated representatives, vote on formal proposals using their native tokens. A successful vote triggers an on-chain upgrade, which can be a hard fork (a non-backwards-compatible change requiring all nodes to update) or a soft fork (a backwards-compatible change). The goal is to coordinate network evolution without centralized control, as seen in systems like Ethereum's EIP process or Cosmos' on-chain governance modules.

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L1 Governance: Definition & Process for Base Layer Blockchains | ChainScore Glossary