Add Signerlist check and Sponsor for ProposalCreate (#8020)

include/xrpl/ledger/ApplyView.h

@@ -43,7 +43,14 @@ enum ApplyFlags : std::uint32_t {
 
     // Transaction shouldn't be applied
     // Signatures shouldn't be checked
-    TapDryRun = 0x1000
+    TapDryRun = 0x1000,
+
+    // Transaction is being preflighted as the payload of a
+    // TransactionProposalCreate. Its signatures are collected on-ledger
+    // afterward, so signature-presence checks (e.g. Batch signer matching)
+    // are skipped at proposal-creation time (On-Chain Cosigner spec
+    // §5.3.1.2).
+    TapProposal = 0x2000
 };
 
 constexpr ApplyFlags

include/xrpl/ledger/helpers/ProposalHelpers.h

@@ -0,0 +1,87 @@
+#pragma once
+
+#include <xrpl/protocol/SField.h>
+#include <xrpl/protocol/STObject.h>
+#include <xrpl/protocol/TxFormats.h>
+
+#include <cstdint>
+
+namespace xrpl::proposal {
+
+/**
+ * Owner-reserve increments held by a proposal of an ordinary transaction.
+ */
+constexpr std::uint32_t kProposalOwnerCount = 5;
+
+/**
+ * Owner-reserve increments held by a proposal of a Batch transaction. A
+ * proposed Batch stores up to eight inner transactions plus multi-account
+ * signatures, so it reserves more than an ordinary proposed transaction.
+ */
+constexpr std::uint32_t kBatchProposalOwnerCount = 10;
+
+/**
+ * Owner-reserve increments held by a proposal of the given transaction.
+ */
+inline std::uint32_t
+proposalOwnerCount(STObject const& proposedTx)
+{
+    return proposedTx.getFieldU16(sfTransactionType) == ttBATCH ? kBatchProposalOwnerCount
+                                                                : kProposalOwnerCount;
+}
+
+/**
+ * Whether the proposed transaction is itself a proposal transaction, which
+ * would nest one proposal inside another.
+ *
+ * TODO: cover ttTRANSACTION_PROPOSAL_SIGN and ttTRANSACTION_PROPOSAL_CANCEL
+ * once those transactions exist.
+ */
+inline bool
+isProposalTx(STObject const& proposedTx)
+{
+    return proposedTx.getFieldU16(sfTransactionType) == ttTRANSACTION_PROPOSAL_CREATE;
+}
+
+/**
+ * Whether the proposed transaction is independently submittable through the
+ * ordinary multi-sign path: not a nested proposal, not a pseudo-transaction,
+ * not itself flagged as someone else's inner batch transaction, and — if it
+ * is a Batch — none of its own inner transactions is a nested proposal or a
+ * pseudo-transaction either. A Batch inner transaction cannot itself be
+ * pseudo (preflight0 rejects the pseudo/tfInnerBatchTxn combination
+ * generically), but that guard lives outside this feature, so it is checked
+ * again here rather than relied upon.
+ */
+bool
+isValidProposal(STObject const& proposedTx);
+
+/**
+ * Whether the proposed transaction carries any signature field.
+ *
+ * A proposal is stored in unsigned canonical form; signatures may only ever
+ * arrive through TransactionProposalSign. Shared by the create-time check and
+ * the invariant that guards the stored entry, so the two cannot drift apart.
+ */
+inline bool
+hasSignatureField(STObject const& proposedTx)
+{
+    return proposedTx.isFieldPresent(sfTxnSignature) || proposedTx.isFieldPresent(sfSigners) ||
+        proposedTx.isFieldPresent(sfBatchSigners) ||
+        proposedTx.isFieldPresent(sfCounterpartySignature) ||
+        proposedTx.isFieldPresent(sfSponsorSignature);
+}
+
+/**
+ * Whether the proposed transaction's SigningPubKey is present and empty, as
+ * unsigned canonical form requires. An absent field is not the same as an
+ * empty one, and a populated one means the payload was already signed.
+ */
+inline bool
+hasEmptySigningPubKey(STObject const& proposedTx)
+{
+    return proposedTx.isFieldPresent(sfSigningPubKey) &&
+        proposedTx.getFieldVL(sfSigningPubKey).empty();
+}
+
+}  // namespace xrpl::proposal

include/xrpl/protocol/Indexes.h

@@ -187,6 +187,20 @@ check(uint256 const& key) noexcept
 }
 /** @} */
 
+/**
+ * A TransactionProposal
+ */
+/** @{ */
+Keylet
+txProposal(AccountID const& target, std::uint32_t ticketSequence) noexcept;
+
+inline Keylet
+txProposal(uint256 const& key) noexcept
+{
+    return {ltTRANSACTION_PROPOSAL, key};
+}
+/** @} */
+
 /**
  * A DepositPreauth
  */

include/xrpl/protocol/detail/features.macro

@@ -15,6 +15,7 @@
 // Add new amendments to the top of this list.
 // Keep it sorted in reverse chronological order.
 
+XRPL_FEATURE(Cosign,                      Supported::No,  VoteBehavior::DefaultNo)
 XRPL_FIX    (Cleanup3_4_0,                Supported::Yes, VoteBehavior::DefaultNo)
 XRPL_FEATURE(Sponsor,                     Supported::Yes, VoteBehavior::DefaultNo)
 XRPL_FEATURE(BatchV1_1,                   Supported::Yes, VoteBehavior::DefaultNo)

include/xrpl/protocol/detail/ledger_entries.macro

@@ -636,5 +636,24 @@ LEDGER_ENTRY(ltSPONSORSHIP, 0x0090, Sponsorship, sponsorship, ({
     {sfSponseeNode,          SoeRequired},
 }))
 
+/** A ledger object holding a pending transaction proposal.
+
+    The proposed transaction is stored unsigned in ProposedTransaction, and
+    signatures accumulate on it over time. It becomes fully signed either from
+    a single signature by its own Account (or that account's Delegate), or once
+    the weight collected in its Signers field meets that account's quorum. At
+    that point the stored transaction is one that anyone may copy and submit.
+
+    \sa keylet::txProposal
+ */
+LEDGER_ENTRY(ltTRANSACTION_PROPOSAL, 0x0091, TransactionProposal, transaction_proposal, ({
+    {sfPreviousTxnID,        SoeRequired},
+    {sfPreviousTxnLgrSeq,    SoeRequired},
+    {sfOwner,                SoeRequired},
+    {sfProposedTransaction,  SoeRequired},
+    {sfExpiration,           SoeRequired},
+    {sfOwnerNode,            SoeRequired},
+}))
+
 #undef EXPAND
 #undef LEDGER_ENTRY_DUPLICATE

include/xrpl/protocol/detail/sfields.macro

@@ -216,6 +216,7 @@ TYPED_SFIELD(sfLoanID,                   UINT256,   38)
 TYPED_SFIELD(sfReferenceHolding,         UINT256,   39)
 TYPED_SFIELD(sfBlindingFactor,           UINT256,   40)
 TYPED_SFIELD(sfObjectID,                 UINT256,   41)
+TYPED_SFIELD(sfProposalID,               UINT256,   42)
 
 // number (common)
 TYPED_SFIELD(sfNumber,                   NUMBER,     1)
@@ -357,6 +358,7 @@ TYPED_SFIELD(sfHighSponsor,              ACCOUNT,   28)
 TYPED_SFIELD(sfLowSponsor,               ACCOUNT,   29)
 TYPED_SFIELD(sfCounterpartySponsor,      ACCOUNT,   30)
 TYPED_SFIELD(sfSponsee,                  ACCOUNT,   31)
+TYPED_SFIELD(sfSigningFor,               ACCOUNT,   32)
 
 // vector of 256-bit
 TYPED_SFIELD(sfIndexes,                  VECTOR256,  1, SField::kSmdNever)
@@ -422,6 +424,7 @@ UNTYPED_SFIELD(sfBatchSigner,            OBJECT,    35)
 UNTYPED_SFIELD(sfBook,                   OBJECT,    36)
 UNTYPED_SFIELD(sfCounterpartySignature,  OBJECT,    37, SField::kSmdDefault, SField::kNotSigning)
 UNTYPED_SFIELD(sfSponsorSignature,       OBJECT,    38, SField::kSmdDefault, SField::kNotSigning)
+UNTYPED_SFIELD(sfProposedTransaction,    OBJECT,    39)
 
 // array of objects (common)
 // ARRAY/1 is reserved for end of array

include/xrpl/protocol/detail/transactions.macro

@@ -1194,6 +1194,20 @@ TRANSACTION(ttSPONSORSHIP_SET, 91, SponsorshipSet,
     {sfRemainingOwnerCount, SoeOptional},
 }))
 
+/** This transaction posts an unsigned transaction on-ledger as a
+    TransactionProposal, pending multi-signature collection. */
+#if TRANSACTION_INCLUDE
+#   include <xrpl/tx/transactors/proposal/TransactionProposalCreate.h>
+#endif
+TRANSACTION(ttTRANSACTION_PROPOSAL_CREATE, 92, TransactionProposalCreate,
+    Delegation::NotDelegable,
+    featureCosign,
+    NoPriv,
+    ({
+    {sfProposedTransaction, SoeRequired},
+    {sfExpiration, SoeRequired},
+}))
+
 /** This system-generated transaction type is used to update the status of the various amendments.
 
     For details, see: https://xrpl.org/amendments.html

include/xrpl/protocol_autogen/ledger_entries/TransactionProposal.h

@@ -0,0 +1,242 @@
+// This file is auto-generated. Do not edit.
+#pragma once
+
+#include <xrpl/protocol/STLedgerEntry.h>
+#include <xrpl/protocol/STParsedJSON.h>
+#include <xrpl/protocol/jss.h>
+#include <xrpl/protocol_autogen/LedgerEntryBase.h>
+#include <xrpl/protocol_autogen/LedgerEntryBuilderBase.h>
+#include <xrpl/json/json_value.h>
+
+#include <stdexcept>
+#include <optional>
+
+namespace xrpl::ledger_entries {
+
+class TransactionProposalBuilder;
+
+/**
+ * @brief Ledger Entry: TransactionProposal
+ *
+ * Type: ltTRANSACTION_PROPOSAL (0x0091)
+ * RPC Name: transaction_proposal
+ *
+ * Immutable wrapper around SLE providing type-safe field access.
+ * Use TransactionProposalBuilder to construct new ledger entries.
+ */
+class TransactionProposal : public LedgerEntryBase
+{
+public:
+    static constexpr LedgerEntryType entryType = ltTRANSACTION_PROPOSAL;
+
+    /**
+     * @brief Construct a TransactionProposal ledger entry wrapper from an existing SLE object.
+     * @throws std::runtime_error if the ledger entry type doesn't match.
+     */
+    explicit TransactionProposal(SLE::const_pointer sle)
+        : LedgerEntryBase(std::move(sle))
+    {
+        // Verify ledger entry type
+        if (sle_->getType() != entryType)
+        {
+            throw std::runtime_error("Invalid ledger entry type for TransactionProposal");
+        }
+    }
+
+    // Ledger entry-specific field getters
+
+    /**
+     * @brief Get sfPreviousTxnID (SoeRequired)
+     * @return The field value.
+     */
+    [[nodiscard]]
+    SF_UINT256::type::value_type
+    getPreviousTxnID() const
+    {
+        return this->sle_->at(sfPreviousTxnID);
+    }
+
+    /**
+     * @brief Get sfPreviousTxnLgrSeq (SoeRequired)
+     * @return The field value.
+     */
+    [[nodiscard]]
+    SF_UINT32::type::value_type
+    getPreviousTxnLgrSeq() const
+    {
+        return this->sle_->at(sfPreviousTxnLgrSeq);
+    }
+
+    /**
+     * @brief Get sfOwner (SoeRequired)
+     * @return The field value.
+     */
+    [[nodiscard]]
+    SF_ACCOUNT::type::value_type
+    getOwner() const
+    {
+        return this->sle_->at(sfOwner);
+    }
+
+    /**
+     * @brief Get sfProposedTransaction (SoeRequired)
+     * @note This is an untyped field (unknown).
+     * @return The field value.
+     */
+    [[nodiscard]]
+    STObject
+    getProposedTransaction() const
+    {
+        return this->sle_->getFieldObject(sfProposedTransaction);
+    }
+
+    /**
+     * @brief Get sfExpiration (SoeRequired)
+     * @return The field value.
+     */
+    [[nodiscard]]
+    SF_UINT32::type::value_type
+    getExpiration() const
+    {
+        return this->sle_->at(sfExpiration);
+    }
+
+    /**
+     * @brief Get sfOwnerNode (SoeRequired)
+     * @return The field value.
+     */
+    [[nodiscard]]
+    SF_UINT64::type::value_type
+    getOwnerNode() const
+    {
+        return this->sle_->at(sfOwnerNode);
+    }
+};
+
+/**
+ * @brief Builder for TransactionProposal ledger entries.
+ *
+ * Provides a fluent interface for constructing ledger entries with method chaining.
+ * Uses STObject internally for flexible ledger entry construction.
+ * Inherits common field setters from LedgerEntryBuilderBase.
+ */
+class TransactionProposalBuilder : public LedgerEntryBuilderBase<TransactionProposalBuilder>
+{
+public:
+    /**
+     * @brief Construct a new TransactionProposalBuilder with required fields.
+     * @param previousTxnID The sfPreviousTxnID field value.
+     * @param previousTxnLgrSeq The sfPreviousTxnLgrSeq field value.
+     * @param owner The sfOwner field value.
+     * @param proposedTransaction The sfProposedTransaction field value.
+     * @param expiration The sfExpiration field value.
+     * @param ownerNode The sfOwnerNode field value.
+     */
+    TransactionProposalBuilder(std::decay_t<typename SF_UINT256::type::value_type> const& previousTxnID,std::decay_t<typename SF_UINT32::type::value_type> const& previousTxnLgrSeq,std::decay_t<typename SF_ACCOUNT::type::value_type> const& owner,STObject const& proposedTransaction,std::decay_t<typename SF_UINT32::type::value_type> const& expiration,std::decay_t<typename SF_UINT64::type::value_type> const& ownerNode)
+        : LedgerEntryBuilderBase<TransactionProposalBuilder>(ltTRANSACTION_PROPOSAL)
+    {
+        setPreviousTxnID(previousTxnID);
+        setPreviousTxnLgrSeq(previousTxnLgrSeq);
+        setOwner(owner);
+        setProposedTransaction(proposedTransaction);
+        setExpiration(expiration);
+        setOwnerNode(ownerNode);
+    }
+
+    /**
+     * @brief Construct a TransactionProposalBuilder from an existing SLE object.
+     * @param sle The existing ledger entry to copy from.
+     * @throws std::runtime_error if the ledger entry type doesn't match.
+     */
+    TransactionProposalBuilder(SLE::const_pointer sle)
+    {
+        if (sle->at(sfLedgerEntryType) != ltTRANSACTION_PROPOSAL)
+        {
+            throw std::runtime_error("Invalid ledger entry type for TransactionProposal");
+        }
+        object_ = *sle;
+    }
+
+    /**
+     * @brief Ledger entry-specific field setters
+     */
+
+    /**
+     * @brief Set sfPreviousTxnID (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalBuilder&
+    setPreviousTxnID(std::decay_t<typename SF_UINT256::type::value_type> const& value)
+    {
+        object_[sfPreviousTxnID] = value;
+        return *this;
+    }
+
+    /**
+     * @brief Set sfPreviousTxnLgrSeq (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalBuilder&
+    setPreviousTxnLgrSeq(std::decay_t<typename SF_UINT32::type::value_type> const& value)
+    {
+        object_[sfPreviousTxnLgrSeq] = value;
+        return *this;
+    }
+
+    /**
+     * @brief Set sfOwner (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalBuilder&
+    setOwner(std::decay_t<typename SF_ACCOUNT::type::value_type> const& value)
+    {
+        object_[sfOwner] = value;
+        return *this;
+    }
+
+    /**
+     * @brief Set sfProposedTransaction (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalBuilder&
+    setProposedTransaction(STObject const& value)
+    {
+        object_.setFieldObject(sfProposedTransaction, value);
+        return *this;
+    }
+
+    /**
+     * @brief Set sfExpiration (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalBuilder&
+    setExpiration(std::decay_t<typename SF_UINT32::type::value_type> const& value)
+    {
+        object_[sfExpiration] = value;
+        return *this;
+    }
+
+    /**
+     * @brief Set sfOwnerNode (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalBuilder&
+    setOwnerNode(std::decay_t<typename SF_UINT64::type::value_type> const& value)
+    {
+        object_[sfOwnerNode] = value;
+        return *this;
+    }
+
+    /**
+     * @brief Build and return the completed TransactionProposal wrapper.
+     * @param index The ledger entry index.
+     * @return The constructed ledger entry wrapper.
+     */
+    TransactionProposal
+    build(uint256 const& index)
+    {
+        return TransactionProposal{std::make_shared<SLE>(std::move(object_), index)};
+    }
+};
+
+}  // namespace xrpl::ledger_entries

include/xrpl/protocol_autogen/transactions/TransactionProposalCreate.h

@@ -0,0 +1,155 @@
+// This file is auto-generated. Do not edit.
+#pragma once
+
+#include <xrpl/protocol/STTx.h>
+#include <xrpl/protocol/STParsedJSON.h>
+#include <xrpl/protocol/jss.h>
+#include <xrpl/protocol_autogen/TransactionBase.h>
+#include <xrpl/protocol_autogen/TransactionBuilderBase.h>
+#include <xrpl/json/json_value.h>
+
+#include <stdexcept>
+#include <optional>
+
+namespace xrpl::transactions {
+
+class TransactionProposalCreateBuilder;
+
+/**
+ * @brief Transaction: TransactionProposalCreate
+ *
+ * Type: ttTRANSACTION_PROPOSAL_CREATE (92)
+ * Delegable: Delegation::NotDelegable
+ * Amendment: featureCosign
+ * Privileges: NoPriv
+ *
+ * Immutable wrapper around STTx providing type-safe field access.
+ * Use TransactionProposalCreateBuilder to construct new transactions.
+ */
+class TransactionProposalCreate : public TransactionBase
+{
+public:
+    static constexpr xrpl::TxType txType = ttTRANSACTION_PROPOSAL_CREATE;
+
+    /**
+     * @brief Construct a TransactionProposalCreate transaction wrapper from an existing STTx object.
+     * @throws std::runtime_error if the transaction type doesn't match.
+     */
+    explicit TransactionProposalCreate(std::shared_ptr<STTx const> tx)
+        : TransactionBase(std::move(tx))
+    {
+        // Verify transaction type
+        if (tx_->getTxnType() != txType)
+        {
+            throw std::runtime_error("Invalid transaction type for TransactionProposalCreate");
+        }
+    }
+
+    // Transaction-specific field getters
+    /**
+     * @brief Get sfProposedTransaction (SoeRequired)
+     * @note This is an untyped field.
+     * @return The field value.
+     */
+    [[nodiscard]]
+    STObject
+    getProposedTransaction() const
+    {
+        return this->tx_->getFieldObject(sfProposedTransaction);
+    }
+
+    /**
+     * @brief Get sfExpiration (SoeRequired)
+     * @return The field value.
+     */
+    [[nodiscard]]
+    SF_UINT32::type::value_type
+    getExpiration() const
+    {
+        return this->tx_->at(sfExpiration);
+    }
+};
+
+/**
+ * @brief Builder for TransactionProposalCreate transactions.
+ *
+ * Provides a fluent interface for constructing transactions with method chaining.
+ * Uses STObject internally for flexible transaction construction.
+ * Inherits common field setters from TransactionBuilderBase.
+ */
+class TransactionProposalCreateBuilder : public TransactionBuilderBase<TransactionProposalCreateBuilder>
+{
+public:
+    /**
+     * @brief Construct a new TransactionProposalCreateBuilder with required fields.
+     * @param account The account initiating the transaction.
+     * @param proposedTransaction The sfProposedTransaction field value.
+     * @param expiration The sfExpiration field value.
+     * @param sequence Optional sequence number for the transaction.
+     * @param fee Optional fee for the transaction.
+     */
+    TransactionProposalCreateBuilder(SF_ACCOUNT::type::value_type account,
+                     STObject const& proposedTransaction,                     std::decay_t<typename SF_UINT32::type::value_type> const& expiration,                    std::optional<SF_UINT32::type::value_type> sequence = std::nullopt,
+                    std::optional<SF_AMOUNT::type::value_type> fee = std::nullopt
+)
+        : TransactionBuilderBase<TransactionProposalCreateBuilder>(ttTRANSACTION_PROPOSAL_CREATE, account, sequence, fee)
+    {
+        setProposedTransaction(proposedTransaction);
+        setExpiration(expiration);
+    }
+
+    /**
+     * @brief Construct a TransactionProposalCreateBuilder from an existing STTx object.
+     * @param tx The existing transaction to copy from.
+     * @throws std::runtime_error if the transaction type doesn't match.
+     */
+    TransactionProposalCreateBuilder(std::shared_ptr<STTx const> tx)
+    {
+        if (tx->getTxnType() != ttTRANSACTION_PROPOSAL_CREATE)
+        {
+            throw std::runtime_error("Invalid transaction type for TransactionProposalCreateBuilder");
+        }
+        object_ = *tx;
+    }
+
+    /**
+     * @brief Transaction-specific field setters
+     */
+
+    /**
+     * @brief Set sfProposedTransaction (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalCreateBuilder&
+    setProposedTransaction(STObject const& value)
+    {
+        object_.setFieldObject(sfProposedTransaction, value);
+        return *this;
+    }
+
+    /**
+     * @brief Set sfExpiration (SoeRequired)
+     * @return Reference to this builder for method chaining.
+     */
+    TransactionProposalCreateBuilder&
+    setExpiration(std::decay_t<typename SF_UINT32::type::value_type> const& value)
+    {
+        object_[sfExpiration] = value;
+        return *this;
+    }
+
+    /**
+     * @brief Build and return the TransactionProposalCreate wrapper.
+     * @param publicKey The public key for signing.
+     * @param secretKey The secret key for signing.
+     * @return The constructed transaction wrapper.
+     */
+    TransactionProposalCreate
+    build(PublicKey const& publicKey, SecretKey const& secretKey)
+    {
+        sign(publicKey, secretKey);
+        return TransactionProposalCreate{std::make_shared<STTx>(std::move(object_))};
+    }
+};
+
+}  // namespace xrpl::transactions

include/xrpl/tx/Transactor.h

@@ -59,6 +59,10 @@ public:
         , j(j)
     {
         XRPL_ASSERT((flags & TapBatch) == TapBatch, "Batch apply flag should be set");
+        XRPL_ASSERT_IF(
+            (flags & TapProposal) != TapNone,
+            (flags & TapDryRun) != TapNone,
+            "xrpl::PreflightContext : proposal preflight implies dry run");
     }
 
     PreflightContext(
@@ -70,6 +74,10 @@ public:
         : registry(registry), tx(tx), rules(std::move(rules)), flags(flags), j(j)
     {
         XRPL_ASSERT((flags & TapBatch) == 0, "Batch apply flag should not be set");
+        XRPL_ASSERT_IF(
+            (flags & TapProposal) != TapNone,
+            (flags & TapDryRun) != TapNone,
+            "xrpl::PreflightContext : proposal preflight implies dry run");
     }
 
     PreflightContext&

include/xrpl/tx/transactors/proposal/TransactionProposalCreate.h

@@ -0,0 +1,44 @@
+#pragma once
+
+#include <xrpl/beast/utility/Journal.h>
+#include <xrpl/core/ServiceRegistry.h>
+#include <xrpl/ledger/ReadView.h>
+#include <xrpl/protocol/STTx.h>
+#include <xrpl/protocol/TER.h>
+#include <xrpl/protocol/XRPAmount.h>
+#include <xrpl/tx/ApplyContext.h>
+#include <xrpl/tx/Transactor.h>
+
+namespace xrpl {
+
+class TransactionProposalCreate : public Transactor
+{
+public:
+    static constexpr auto kConsequencesFactory = ConsequencesFactoryType::Normal;
+
+    explicit TransactionProposalCreate(ApplyContext& ctx) : Transactor(ctx)
+    {
+    }
+
+    static NotTEC
+    preflight(PreflightContext const& ctx);
+
+    static TER
+    preclaim(PreclaimContext const& ctx);
+
+    TER
+    doApply() override;
+
+    void
+    visitInvariantEntry(bool isDelete, SLE::const_ref before, SLE::const_ref after) override;
+
+    [[nodiscard]] bool
+    finalizeInvariants(
+        STTx const& tx,
+        TER result,
+        XRPAmount fee,
+        ReadView const& view,
+        beast::Journal const& j) override;
+};
+
+}  // namespace xrpl

src/libxrpl/ledger/helpers/ProposalHelpers.cpp

@@ -0,0 +1,39 @@
+#include <xrpl/ledger/helpers/ProposalHelpers.h>
+
+#include <xrpl/protocol/SField.h>
+#include <xrpl/protocol/STArray.h>
+#include <xrpl/protocol/STObject.h>
+#include <xrpl/protocol/STTx.h>
+#include <xrpl/protocol/TxFlags.h>
+#include <xrpl/protocol/TxFormats.h>
+
+namespace xrpl::proposal {
+
+bool
+isValidProposal(STObject const& proposedTx)
+{
+    if (isProposalTx(proposedTx))
+        return false;
+
+    if (isPseudoTx(proposedTx))
+        return false;
+
+    if (proposedTx.isFieldPresent(sfFlags) &&
+        (proposedTx.getFieldU32(sfFlags) & tfInnerBatchTxn) != 0u)
+        return false;
+
+    if (proposedTx.getFieldU16(sfTransactionType) == ttBATCH &&
+        proposedTx.isFieldPresent(sfRawTransactions))
+    {
+        STArray const& innerTxns = proposedTx.getFieldArray(sfRawTransactions);
+        for (STObject const& inner : innerTxns)
+        {
+            if (isProposalTx(inner) || isPseudoTx(inner))
+                return false;
+        }
+    }
+
+    return true;
+}
+
+}  // namespace xrpl::proposal

src/libxrpl/ledger/helpers/SponsorHelpers.cpp

@@ -5,6 +5,7 @@
 #include <xrpl/ledger/ReadView.h>
 #include <xrpl/ledger/helpers/AccountRootHelpers.h>
 #include <xrpl/ledger/helpers/OracleHelpers.h>
+#include <xrpl/ledger/helpers/ProposalHelpers.h>
 #include <xrpl/protocol/AccountID.h>
 #include <xrpl/protocol/Feature.h>
 #include <xrpl/protocol/Indexes.h>
@@ -56,6 +57,7 @@ isReserveSponsorAllowed(TxType txType)
         ttACCOUNT_SET,
         ttREGULAR_KEY_SET,
         ttSPONSORSHIP_TRANSFER,
+        ttTRANSACTION_PROPOSAL_CREATE,
     };
     return kReserveSponsorAllowed.contains(txType);
 }
@@ -255,6 +257,8 @@ isLedgerEntryOwner(ReadView const& view, SLE const& sle, AccountID const& accoun
             // to tecNO_PERMISSION.
             return false;
         }
+        case ltTRANSACTION_PROPOSAL:
+            return sle.getAccountID(sfOwner) == account;
         default:
             // LCOV_EXCL_START
             UNREACHABLE("xrpl::isLedgerEntryOwner : object is not supported by sponsorship.");
@@ -278,6 +282,7 @@ isLedgerEntrySupportedBySponsorship(SLE const& sle)
         case ltSIGNER_LIST:
         case ltCREDENTIAL:
         case ltRIPPLE_STATE:
+        case ltTRANSACTION_PROPOSAL:
             return true;
         default:
             return false;
@@ -304,6 +309,11 @@ getLedgerEntryOwnerCount(SLE const& sle)
                 return 1;
             return 2 + static_cast<std::uint32_t>(sle.getFieldArray(sfSignerEntries).size());
         }
+        case ltTRANSACTION_PROPOSAL:
+            // Mirror TransactionProposalCreate's own reserve sizing so that
+            // creation and sponsorship accounting agree: a proposed Batch
+            // reserves more than an ordinary proposal.
+            return proposal::proposalOwnerCount(sle.getFieldObject(sfProposedTransaction));
         case ltACCOUNT_ROOT:
             // LCOV_EXCL_START
             UNREACHABLE("AccountRoots are not supported by object sponsorship.");

src/libxrpl/protocol/Indexes.cpp

@@ -104,6 +104,7 @@ enum class LedgerNameSpace : std::uint16_t {
     LoanBroker = 'l',  // lower-case L
     Loan = 'L',
     Sponsorship = '>',
+    TransactionProposal = 'y',
 
     // No longer used or supported. Left here to reserve the space to avoid accidental reuse.
     Contract [[deprecated]] = 'c',
@@ -358,6 +359,14 @@ check(AccountID const& id, std::uint32_t seq) noexcept
     return {ltCHECK, indexHash(LedgerNameSpace::Check, id, seq)};
 }
 
+Keylet
+txProposal(AccountID const& target, std::uint32_t ticketSequence) noexcept
+{
+    return {
+        ltTRANSACTION_PROPOSAL,
+        indexHash(LedgerNameSpace::TransactionProposal, target, ticketSequence)};
+}
+
 Keylet
 depositPreauth(AccountID const& owner, AccountID const& preauthorized) noexcept
 {

src/libxrpl/tx/applySteps.cpp

@@ -324,6 +324,17 @@ preflight(
     beast::Journal j)
 {
     PreflightContext const pfCtx(registry, tx, rules, flags, j);
+
+    // XRPL_ASSERT_IF in the PreflightContext constructor only fires in debug
+    // builds; re-check the same invariant here so a release build can't
+    // silently skip a proposed transaction's signature-presence checks
+    // outside of a dry run.
+    if ((flags & TapProposal) != TapNone && (flags & TapDryRun) == TapNone)
+    {
+        JLOG(j.fatal()) << "apply (preflight): TapProposal set without TapDryRun.";
+        return {pfCtx, {tefEXCEPTION, TxConsequences{tx}}};
+    }
+
     try
     {
         return {pfCtx, invokePreflight(pfCtx)};
@@ -345,6 +356,14 @@ preflight(
     beast::Journal j)
 {
     PreflightContext const pfCtx(registry, tx, parentBatchId, rules, flags, j);
+
+    // See the comment in the other preflight() overload above.
+    if ((flags & TapProposal) != TapNone && (flags & TapDryRun) == TapNone)
+    {
+        JLOG(j.fatal()) << "apply (preflight): TapProposal set without TapDryRun.";
+        return {pfCtx, {tefEXCEPTION, TxConsequences{tx}}};
+    }
+
     try
     {
         return {pfCtx, invokePreflight(pfCtx)};

src/libxrpl/tx/transactors/lending/LoanSet.cpp

@@ -5,6 +5,7 @@
 #include <xrpl/beast/utility/Zero.h>
 #include <xrpl/beast/utility/instrumentation.h>
 #include <xrpl/core/ServiceRegistry.h>
+#include <xrpl/ledger/ApplyView.h>
 #include <xrpl/ledger/View.h>
 #include <xrpl/ledger/helpers/AccountRootHelpers.h>
 #include <xrpl/ledger/helpers/LendingHelpers.h>
@@ -79,7 +80,10 @@ LoanSet::preflight(PreflightContext const& ctx)
             return tx.getFieldObject(sfCounterpartySignature);
         return std::nullopt;
     }();
-    if (!tx.isFlag(tfInnerBatchTxn) && !counterPartySig)
+    // A proposed LoanSet is stored unsigned; its CounterpartySignature is
+    // collected on-ledger afterward, so its absence here is expected, not an
+    // error (On-Chain Cosigner spec §5.3.1.2).
+    if (!tx.isFlag(tfInnerBatchTxn) && !counterPartySig && (ctx.flags & TapProposal) == 0)
     {
         JLOG(ctx.j.warn()) << "LoanSet transaction must have a CounterpartySignature.";
         return temBAD_SIGNER;

src/libxrpl/tx/transactors/proposal/TransactionProposalCreate.cpp

@@ -0,0 +1,315 @@
+#include <xrpl/tx/transactors/proposal/TransactionProposalCreate.h>
+
+#include <xrpl/basics/Log.h>
+#include <xrpl/core/ServiceRegistry.h>
+#include <xrpl/ledger/ApplyView.h>
+#include <xrpl/ledger/View.h>
+#include <xrpl/ledger/helpers/AccountRootHelpers.h>
+#include <xrpl/ledger/helpers/DelegateHelpers.h>
+#include <xrpl/ledger/helpers/DirectoryHelpers.h>
+#include <xrpl/ledger/helpers/ProposalHelpers.h>
+#include <xrpl/ledger/helpers/SponsorHelpers.h>
+#include <xrpl/protocol/AccountID.h>
+#include <xrpl/protocol/Indexes.h>
+#include <xrpl/protocol/Keylet.h>
+#include <xrpl/protocol/SField.h>
+#include <xrpl/protocol/STLedgerEntry.h>
+#include <xrpl/protocol/STObject.h>
+#include <xrpl/protocol/STTx.h>
+#include <xrpl/protocol/TER.h>
+#include <xrpl/protocol/XRPAmount.h>
+#include <xrpl/tx/SignerEntries.h>
+#include <xrpl/tx/Transactor.h>
+#include <xrpl/tx/applySteps.h>
+
+#include <algorithm>
+#include <cstdint>
+#include <exception>
+#include <expected>
+#include <memory>
+
+namespace xrpl {
+
+NotTEC
+TransactionProposalCreate::preflight(PreflightContext const& ctx)
+{
+    if (ctx.tx[sfExpiration] == 0)
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: zero expiration.";
+        return temBAD_EXPIRATION;
+    }
+
+    STObject const proposedTx = ctx.tx.getFieldObject(sfProposedTransaction);
+
+    if (!proposedTx.isFieldPresent(sfTransactionType) || !proposedTx.isFieldPresent(sfAccount))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn "
+                               "lacks TransactionType or Account.";
+        return temMALFORMED;
+    }
+
+    // The proposed transaction must be independently submittable through the
+    // ordinary multi-sign path: no nested proposals, no pseudo-transactions,
+    // no batch inner transactions — and, if it is a Batch, none of its own
+    // inner transactions may be a nested proposal or a pseudo-transaction
+    // either.
+    if (!proposal::isValidProposal(proposedTx))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn is not "
+                               "independently submittable.";
+        return temINVALID;
+    }
+
+    // The proposed transaction is stored in its unsigned canonical form; the
+    // ledger populates its signature fields as contributions arrive.
+    if (proposal::hasSignatureField(proposedTx))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn "
+                               "carries signature fields.";
+        return temBAD_SIGNER;
+    }
+
+    if (!proposal::hasEmptySigningPubKey(proposedTx))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn "
+                               "SigningPubKey must be present and empty.";
+        return temBAD_SIGNER;
+    }
+
+    // The proposed transaction's fee is charged to the target account when
+    // the completed transaction is submitted, so it must be fixed now.
+    if (!proposedTx.isFieldPresent(sfFee) || !proposedTx.isFieldPresent(sfSequence))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn "
+                               "lacks Fee or Sequence.";
+        return temMALFORMED;
+    }
+
+    // The proposed transaction must be ticket-based: it must carry a
+    // TicketSequence and must not use a live Sequence. Sequence is a required
+    // common field, so "no Sequence" is expressed as a Sequence of 0 rather
+    // than an absent field. A ticket decouples the proposal from the target
+    // account's live sequence, so unrelated target-account activity cannot
+    // invalidate it while signatures are collected (On-Chain Cosigner spec
+    // §4.2.1).
+    if (!proposedTx.isFieldPresent(sfTicketSequence) || proposedTx.getFieldU32(sfSequence) != 0)
+        return temSEQ_AND_TICKET;
+
+    // The proposed transaction must pass its own static checks under the
+    // current rules, so no statically-dead proposal can be stored. TapDryRun
+    // accepts the unsigned canonical form without a signature check;
+    // TapProposal additionally skips signature-presence checks (e.g. Batch
+    // signer matching), which are deferred to submission time (On-Chain
+    // Cosigner spec §5.3.1.2).
+    try
+    {
+        STTx const stx{STObject{proposedTx}};
+        auto const inner =
+            xrpl::preflight(ctx.registry, ctx.rules, stx, TapDryRun | TapProposal, ctx.j);
+        if (!isTesSuccess(inner.ter))
+        {
+            JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn "
+                                   "failed preflight: "
+                                << transHuman(inner.ter);
+            // Surface the proposed transaction type's own preflight code
+            // rather than collapsing it to a generic error (On-Chain Cosigner
+            // spec §5.3.1).
+            return inner.ter;
+        }
+    }
+    catch (std::exception const& e)
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn is "
+                               "malformed: "
+                            << e.what();
+        return temMALFORMED;
+    }
+
+    return tesSUCCESS;
+}
+
+TER
+TransactionProposalCreate::preclaim(PreclaimContext const& ctx)
+{
+    if (hasExpired(ctx.view, ctx.tx[~sfExpiration]))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: already expired.";
+        return tecEXPIRED;
+    }
+
+    auto const proposedTx = ctx.tx.getFieldObject(sfProposedTransaction);
+
+    // Once the proposed transaction's own ledger bound has passed it can never
+    // be applied, so the proposal is dead on arrival. The bound is the one the
+    // ordinary path uses for tefMAX_LEDGER: the last ledger in which the
+    // proposed transaction may still be submitted (On-Chain Cosigner spec
+    // §4.5).
+    if (proposedTx.isFieldPresent(sfLastLedgerSequence) &&
+        proposedTx.getFieldU32(sfLastLedgerSequence) <= ctx.view.seq())
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposed txn "
+                               "LastLedgerSequence has passed.";
+        return tecEXPIRED;
+    }
+
+    AccountID const target = proposedTx.getAccountID(sfAccount);
+    auto const sleTarget = ctx.view.read(keylet::account(target));
+    if (!sleTarget)
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: target account "
+                               "does not exist.";
+        return tecNO_TARGET;
+    }
+
+    // A pseudo-account cannot authorize a transaction through a SignerList.
+    if (isPseudoAccount(sleTarget))
+        return tecNO_PERMISSION;
+
+    // Only the target account itself, an account on its SignerList, or (if
+    // the proposed transaction's own type has been delegated by the target,
+    // Permission Delegation / XLS-75) that delegate or an account on the
+    // delegate's own SignerList, may create a proposal against it. Otherwise
+    // any account could spam or squat the target's Tickets with unwanted
+    // proposals (On-Chain Cosigner V1 scope).
+    if (AccountID const proposer = ctx.tx.getAccountID(sfAccount); proposer != target)
+    {
+        // Whether `proposer` is `account` itself or an entry on `account`'s
+        // applicable SignerList.
+        auto isAuthorizedFor = [&](AccountID const& account) -> std::expected<bool, TER> {
+            if (proposer == account)
+                return true;
+
+            auto const sleSigners = ctx.view.read(keylet::signerList(account));
+            if (!sleSigners)
+                return false;
+
+            auto const accountSigners = SignerEntries::deserialize(*sleSigners, ctx.j, "ledger");
+            if (!accountSigners)
+                return std::unexpected(TER{accountSigners.error()});
+
+            return std::ranges::any_of(
+                *accountSigners, [&](auto const& entry) { return entry.account == proposer; });
+        };
+
+        auto isSigner = isAuthorizedFor(target);
+        if (!isSigner)
+            return isSigner.error();
+
+        // A delegate that the target has granted permission over the
+        // proposed transaction's own type — or one of that delegate's own
+        // signers — is equally authorized: it will need to help complete
+        // the proposed transaction's own authorization anyway once the
+        // proposal is submitted.
+        if (!*isSigner && proposedTx.isFieldPresent(sfDelegate))
+        {
+            AccountID const delegateAccount = proposedTx.getAccountID(sfDelegate);
+            // NOLINTNEXTLINE(readability-suspicious-call-argument)
+            auto const sleDelegate = ctx.view.read(keylet::delegate(target, delegateAccount));
+            if (sleDelegate &&
+                isTesSuccess(checkTxPermission(sleDelegate, STTx{STObject{proposedTx}})))
+            {
+                isSigner = isAuthorizedFor(delegateAccount);
+                if (!isSigner)
+                    return isSigner.error();
+            }
+        }
+
+        if (!*isSigner)
+        {
+            JLOG(ctx.j.debug()) << "TransactionProposalCreate: proposer is "
+                                   "not the target account, one of its "
+                                   "signers, or an authorized delegate.";
+            return tecNO_PERMISSION;
+        }
+    }
+
+    std::uint32_t const ticketSequence = proposedTx.getFieldU32(sfTicketSequence);
+
+    // The proposal reserves the ticket for as long as it exists (On-Chain
+    // Cosigner spec §4.2.1, §5.3.2): a ticket that doesn't exist yet can't be
+    // reserved.
+    if (!ctx.view.exists(keylet::ticket(target, ticketSequence)))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: target ticket "
+                               "does not exist.";
+        return tefNO_TICKET;
+    }
+
+    if (ctx.view.exists(keylet::txProposal(target, ticketSequence)))
+    {
+        JLOG(ctx.j.debug()) << "TransactionProposalCreate: duplicate proposal.";
+        return tecDUPLICATE;
+    }
+
+    return tesSUCCESS;
+}
+
+TER
+TransactionProposalCreate::doApply()
+{
+    auto const sle = view().peek(keylet::account(accountID_));
+    if (!sle)
+        return tefINTERNAL;  // LCOV_EXCL_LINE
+
+    auto const proposedTx = ctx_.tx.getFieldObject(sfProposedTransaction);
+    std::uint32_t const ownerCount = proposal::proposalOwnerCount(proposedTx);
+
+    // The proposal holds a full transaction plus its collected signatures, so
+    // it reserves more than a typical ledger entry (5 increments; 10 for a
+    // proposed Batch).
+    if (auto const ret = checkReserve(
+            ctx_.getApplyViewContext(),
+            sle,
+            preFeeBalance_,
+            {.ownerCountDelta = static_cast<int>(ownerCount)},
+            ctx_.journal);
+        !isTesSuccess(ret))
+        return ret;
+
+    AccountID const target = proposedTx.getAccountID(sfAccount);
+    std::uint32_t const ticketSequence = proposedTx.getFieldU32(sfTicketSequence);
+
+    Keylet const proposalKeylet = keylet::txProposal(target, ticketSequence);
+    auto sleProposal = std::make_shared<SLE>(proposalKeylet);
+    sleProposal->setAccountID(sfOwner, accountID_);
+    sleProposal->setFieldObject(sfProposedTransaction, proposedTx);
+    sleProposal->setFieldU32(sfExpiration, ctx_.tx[sfExpiration]);
+
+    view().insert(sleProposal);
+
+    auto viewJ = ctx_.registry.get().getJournal("View");
+    {
+        auto const page = view().dirInsert(
+            keylet::ownerDir(accountID_), proposalKeylet, describeOwnerDir(accountID_));
+        if (!page)
+            return tecDIR_FULL;  // LCOV_EXCL_LINE
+        sleProposal->setFieldU64(sfOwnerNode, *page);
+    }
+
+    increaseOwnerCount(ctx_.getApplyViewContext(), sle, ownerCount, viewJ);
+    addSponsorToLedgerEntry(ctx_.getApplyViewContext(), sleProposal);
+    return tesSUCCESS;
+}
+
+void
+TransactionProposalCreate::visitInvariantEntry(bool, SLE::const_ref, SLE::const_ref)
+{
+    // No transaction-specific invariants yet (future work). Object-level
+    // invariants for the TransactionProposal ledger entry (unsigned canonical
+    // form, non-zero Expiration, correct ProposalID key, sorted/unique signer
+    // arrays) belong in a protocol-level ValidTransactionProposal check.
+}
+
+bool
+TransactionProposalCreate::finalizeInvariants(
+    STTx const&,
+    TER,
+    XRPAmount,
+    ReadView const&,
+    beast::Journal const&)
+{
+    // No transaction-specific invariants yet (future work).
+    return true;
+}
+
+}  // namespace xrpl

src/libxrpl/tx/transactors/sponsor/SponsorshipTransfer.cpp

@@ -199,7 +199,11 @@ SponsorshipTransfer::preflight(PreflightContext const& ctx)
     bool const isAccountReserveSponsorship =
         isCreateOrReassign && reserveSponsor && !ctx.tx.isFieldPresent(sfObjectID);
 
-    if (isAccountReserveSponsorship && !ctx.tx.isFieldPresent(sfSponsorSignature))
+    // A proposed SponsorshipTransfer is stored unsigned; its SponsorSignature
+    // is collected on-ledger afterward, so its absence here is expected, not
+    // an error (On-Chain Cosigner spec §5.3.1.2).
+    if (isAccountReserveSponsorship && !ctx.tx.isFieldPresent(sfSponsorSignature) &&
+        (ctx.flags & TapProposal) == 0)
     {
         JLOG(ctx.j.debug()) << "preflight: account sponsorship requires sfSponsorSignature";
         return temMALFORMED;

src/libxrpl/tx/transactors/system/Batch.cpp

@@ -406,6 +406,13 @@ Batch::preflightSigValidated(PreflightContext const& ctx)
 {
     XRPL_ASSERT(
         ctx.tx.getTxnType() == ttBATCH, "xrpl::Batch::preflightSigValidated : batch transaction");
+
+    // A proposed Batch is stored unsigned; its BatchSigners are collected
+    // on-ledger afterward, so the signer-presence match belongs to submission
+    // time, not proposal creation (On-Chain Cosigner spec §5.3.1.2).
+    if ((ctx.flags & TapProposal) != 0)
+        return tesSUCCESS;
+
     auto const parentBatchId = ctx.tx.getTransactionID();
     auto const outerAccount = ctx.tx.getAccountID(sfAccount);
     // Accounts that must sign the batch: each inner authorizer and counterparty

src/test/jtx/impl/proposal.cpp

@@ -0,0 +1,135 @@
+#include <test/jtx/proposal.h>
+
+#include <test/jtx/Account.h>
+#include <test/jtx/Env.h>
+#include <test/jtx/batch.h>
+#include <test/jtx/multisign.h>
+#include <test/jtx/ticket.h>
+#include <test/jtx/utility.h>
+
+#include <xrpl/basics/chrono.h>
+#include <xrpl/json/json_value.h>
+#include <xrpl/protocol/AccountID.h>
+#include <xrpl/protocol/Indexes.h>
+#include <xrpl/protocol/SField.h>
+#include <xrpl/protocol/STAmount.h>
+#include <xrpl/protocol/STLedgerEntry.h>
+#include <xrpl/protocol/jss.h>
+
+#include <cstdint>
+#include <optional>
+#include <set>
+#include <string>
+#include <utility>
+#include <vector>
+
+namespace xrpl::test::jtx::proposal {
+
+json::Value
+create(Account const& proposer, json::Value const& proposedTx, std::uint32_t expiration)
+{
+    json::Value jv;
+    jv[jss::TransactionType] = "TransactionProposalCreate";
+    jv[jss::Account] = proposer.human();
+    jv[sfProposedTransaction.jsonName] = proposedTx;
+    jv[sfExpiration.jsonName] = expiration;
+    return jv;
+}
+
+json::Value
+unsignedPayload(Env const& env, json::Value tx, std::uint32_t ticketSeq)
+{
+    // Unsigned canonical form: an empty SigningPubKey and no signature fields
+    // at all. Signatures may only ever arrive through TransactionProposalSign.
+    tx[jss::SigningPubKey] = "";
+
+    // Ticket-based rather than sequence-based. Sequence is a required common
+    // field, so "no Sequence" is expressed as a Sequence of 0.
+    tx[jss::Sequence] = 0;
+    tx[sfTicketSequence.jsonName] = ticketSeq;
+
+    // The target account pays this fee when the completed transaction is
+    // submitted, so it is fixed now. A fee already chosen by the caller stands.
+    fillFee(tx, *env.current());
+
+    return tx;
+}
+
+json::Value
+innerTx(json::Value tx, std::uint32_t seq)
+{
+    return batch::Inner{std::move(tx), seq}.getTxn();
+}
+
+json::Value
+unsignedBatch(
+    Env const& env,
+    Account const& target,
+    std::uint32_t ticketSeq,
+    std::uint32_t flags,
+    std::vector<json::Value> const& inners,
+    std::optional<std::uint32_t> numSigners)
+{
+    // Each inner account other than the outer one will contribute one
+    // BatchSigners entry once the signatures are collected, and the outer fee
+    // has to cover them from the start (Batch::calculateBaseFee).
+    std::uint32_t const signers = numSigners ? *numSigners : [&]() {
+        std::set<std::string> participants;
+        for (auto const& inner : inners)
+        {
+            if (auto const account = inner[jss::Account].asString(); account != target.human())
+                participants.insert(account);
+        }
+        return static_cast<std::uint32_t>(participants.size());
+    }();
+
+    json::Value jv = batch::outer(
+        target,
+        0,
+        batch::calcBatchFee(env, signers, static_cast<std::uint32_t>(inners.size())),
+        flags);
+
+    json::Value& rawTransactions = jv[jss::RawTransactions];
+    for (auto const& inner : inners)
+        rawTransactions[rawTransactions.size()][jss::RawTransaction] = inner;
+
+    return unsignedPayload(env, std::move(jv), ticketSeq);
+}
+
+void
+authorizeProposer(Env& env, Account const& target, Account const& proposer)
+{
+    env(signers(target, 1, {{proposer, 1}}));
+    env.close();
+}
+
+std::uint32_t
+createTicket(Env& env, Account const& account, std::uint32_t count)
+{
+    // The tickets a TicketCreate makes are numbered from the sequence that
+    // follows the one it consumes.
+    std::uint32_t const firstTicketSeq = env.seq(account) + 1;
+    env(ticket::create(account, count));
+    env.close();
+    return firstTicketSeq;
+}
+
+std::uint32_t
+expiration(Env& env, NetClock::duration delta)
+{
+    return (env.now() + delta).time_since_epoch().count();
+}
+
+SLE::const_pointer
+entry(Env const& env, AccountID const& target, std::uint32_t ticketSeq)
+{
+    return env.le(keylet::txProposal(target, ticketSeq));
+}
+
+SLE::const_pointer
+entry(Env const& env, Account const& target, std::uint32_t ticketSeq)
+{
+    return entry(env, target.id(), ticketSeq);
+}
+
+}  // namespace xrpl::test::jtx::proposal

src/test/jtx/proposal.h

@@ -0,0 +1,150 @@
+#pragma once
+
+#include <test/jtx/Account.h>
+#include <test/jtx/Env.h>
+
+#include <xrpl/basics/chrono.h>
+#include <xrpl/json/json_value.h>
+#include <xrpl/ledger/helpers/ProposalHelpers.h>
+#include <xrpl/protocol/AccountID.h>
+#include <xrpl/protocol/STLedgerEntry.h>
+
+#include <cstdint>
+#include <optional>
+#include <vector>
+
+/**
+ * @brief Helpers for constructing TransactionProposal test transactions.
+ */
+namespace xrpl::test::jtx::proposal {
+
+// The owner-reserve increments a proposal holds against its proposer. Tests
+// spend these rather than repeating their values, so they follow the transactor
+// instead of checking it; TransactionProposalCreate_test pins the values
+// themselves, so a change to them has to be a deliberate one.
+using xrpl::proposal::kBatchProposalOwnerCount;
+using xrpl::proposal::kProposalOwnerCount;
+
+/**
+ * @brief Build a TransactionProposalCreate carrying an unsigned proposed
+ * transaction.
+ *
+ * @param proposer The account creating and paying the reserve for the proposal.
+ * @param proposedTx The proposed transaction, in unsigned canonical form; see
+ *        unsignedPayload().
+ * @param expiration Absolute time after which the proposal may no longer be
+ *        completed.
+ * @return The TransactionProposalCreate JSON object.
+ */
+json::Value
+create(Account const& proposer, json::Value const& proposedTx, std::uint32_t expiration);
+
+/**
+ * @brief Put a transaction of any type into the form a proposal stores it in:
+ * unsigned and ticket-based, with the fee the target account will pay fixed
+ * now.
+ *
+ * This takes whatever any jtx generator produces — @c pay(), @c loan::set(),
+ * @c sponsor::transfer(), an outer @c Batch — and applies only what the
+ * proposal itself demands of the payload, so a test never hand-rolls those
+ * fields. It leaves the rest of @p tx untouched, which is what lets a test
+ * build one valid payload and then break exactly one rule of it.
+ *
+ * The payload is ticket-based so unrelated activity on the target account
+ * cannot invalidate it while signatures are collected. A Fee already set on
+ * @p tx is left alone, so a payload whose fee is not the base fee — a Batch,
+ * say — can carry its own; otherwise the fee is filled in the same way as for
+ * an ordinary submission.
+ *
+ * @param env The test environment providing ledger fee settings.
+ * @param tx The transaction to propose.
+ * @param ticketSeq A ticket sequence owned by @p tx's account.
+ * @return The proposed transaction JSON object.
+ */
+json::Value
+unsignedPayload(Env const& env, json::Value tx, std::uint32_t ticketSeq);
+
+/**
+ * @brief Put a transaction into the form an inner transaction of a proposed
+ * Batch takes, as @c batch::Inner does for an ordinary Batch.
+ *
+ * @param tx The transaction to nest.
+ * @param seq The sequence number of @p tx's own account.
+ * @return The inner transaction JSON object.
+ */
+json::Value
+innerTx(json::Value tx, std::uint32_t seq);
+
+/**
+ * @brief An unsigned outer Batch payload holding @p inners.
+ *
+ * A proposed Batch stores no BatchSigners — the participants' signatures are
+ * collected on-ledger afterwards — but its fee is fixed now and must already
+ * cover them. By default one signer is assumed for each inner account other
+ * than @p target, which is what those participants will contribute.
+ *
+ * @param env The test environment providing ledger fee settings.
+ * @param target The outer account of the Batch, and the proposal's target.
+ * @param ticketSeq A ticket sequence owned by @p target.
+ * @param flags The Batch mode flags, e.g. @c tfAllOrNothing.
+ * @param inners The inner transactions; see innerTx().
+ * @param numSigners Overrides the number of signatures the fee accounts for.
+ * @return The proposed Batch JSON object.
+ */
+json::Value
+unsignedBatch(
+    Env const& env,
+    Account const& target,
+    std::uint32_t ticketSeq,
+    std::uint32_t flags,
+    std::vector<json::Value> const& inners,
+    std::optional<std::uint32_t> numSigners = std::nullopt);
+
+/**
+ * @brief Give @p proposer a place on @p target's SignerList, so it may
+ * create proposals against @p target.
+ *
+ * Only the target account itself, or an account on its SignerList, may
+ * create a TransactionProposalCreate against it (On-Chain Cosigner V1
+ * authorization). Sets a minimal one-signer, quorum-1 list; the quorum
+ * itself is irrelevant here since it only governs the proposed
+ * transaction's own completion, not who may propose it.
+ *
+ * @param env The test environment.
+ * @param target The account whose SignerList is set.
+ * @param proposer The account to add to it.
+ */
+void
+authorizeProposer(Env& env, Account const& target, Account const& proposer);
+
+/**
+ * @brief Create tickets for a proposal to be built against, and close the
+ * ledger.
+ *
+ * @param env The test environment.
+ * @param account The account that will own the tickets, i.e. the target of the
+ *        proposals to come.
+ * @param count How many tickets to create.
+ * @return The first ticket sequence created; the rest follow it.
+ */
+std::uint32_t
+createTicket(Env& env, Account const& account, std::uint32_t count = 1);
+
+/**
+ * @brief An absolute expiration @p delta past the environment's current time.
+ *
+ * @c expiration(env, 0s) is an expiration that has already passed.
+ */
+std::uint32_t
+expiration(Env& env, NetClock::duration delta);
+
+/**
+ * @brief The proposal stored against a target account's ticket.
+ * @return empty if no such proposal exists.
+ */
+[[nodiscard]] SLE::const_pointer
+entry(Env const& env, AccountID const& target, std::uint32_t ticketSeq);
+[[nodiscard]] SLE::const_pointer
+entry(Env const& env, Account const& target, std::uint32_t ticketSeq);
+
+}  // namespace xrpl::test::jtx::proposal

src/tests/libxrpl/protocol_autogen/ledger_entries/TransactionProposalTests.cpp

@@ -0,0 +1,223 @@
+// Auto-generated unit tests for ledger entry TransactionProposal
+
+
+#include <gtest/gtest.h>
+
+#include <protocol_autogen/TestHelpers.h>
+
+#include <xrpl/protocol/STLedgerEntry.h>
+#include <xrpl/protocol_autogen/ledger_entries/TransactionProposal.h>
+#include <xrpl/protocol_autogen/ledger_entries/Ticket.h>
+
+#include <string>
+
+namespace xrpl::ledger_entries {
+
+// 1 & 4) Set fields via builder setters, build, then read them back via
+// wrapper getters. After build(), validate() should succeed for both the
+// builder's STObject and the wrapper's SLE.
+TEST(TransactionProposalTests, BuilderSettersRoundTrip)
+{
+    uint256 const index{1u};
+
+    auto const previousTxnIDValue = canonical_UINT256();
+    auto const previousTxnLgrSeqValue = canonical_UINT32();
+    auto const ownerValue = canonical_ACCOUNT();
+    auto const proposedTransactionValue = canonical_OBJECT();
+    auto const expirationValue = canonical_UINT32();
+    auto const ownerNodeValue = canonical_UINT64();
+
+    TransactionProposalBuilder builder{
+        previousTxnIDValue,
+        previousTxnLgrSeqValue,
+        ownerValue,
+        proposedTransactionValue,
+        expirationValue,
+        ownerNodeValue
+    };
+
+
+    builder.setLedgerIndex(index);
+    builder.setFlags(0x1u);
+
+    EXPECT_TRUE(builder.validate());
+
+    auto const entry = builder.build(index);
+
+    EXPECT_TRUE(entry.validate());
+
+    {
+        auto const& expected = previousTxnIDValue;
+        auto const actual = entry.getPreviousTxnID();
+        expectEqualField(expected, actual, "sfPreviousTxnID");
+    }
+
+    {
+        auto const& expected = previousTxnLgrSeqValue;
+        auto const actual = entry.getPreviousTxnLgrSeq();
+        expectEqualField(expected, actual, "sfPreviousTxnLgrSeq");
+    }
+
+    {
+        auto const& expected = ownerValue;
+        auto const actual = entry.getOwner();
+        expectEqualField(expected, actual, "sfOwner");
+    }
+
+    {
+        auto const& expected = proposedTransactionValue;
+        auto const actual = entry.getProposedTransaction();
+        expectEqualField(expected, actual, "sfProposedTransaction");
+    }
+
+    {
+        auto const& expected = expirationValue;
+        auto const actual = entry.getExpiration();
+        expectEqualField(expected, actual, "sfExpiration");
+    }
+
+    {
+        auto const& expected = ownerNodeValue;
+        auto const actual = entry.getOwnerNode();
+        expectEqualField(expected, actual, "sfOwnerNode");
+    }
+
+    EXPECT_TRUE(entry.hasLedgerIndex());
+    auto const ledgerIndex = entry.getLedgerIndex();
+    ASSERT_TRUE(ledgerIndex.has_value());
+    EXPECT_EQ(*ledgerIndex, index);
+    EXPECT_EQ(entry.getKey(), index);
+}
+
+// 2 & 4) Start from an SLE, set fields directly on it, construct a builder
+// from that SLE, build a new wrapper, and verify all fields (and validate()).
+TEST(TransactionProposalTests, BuilderFromSleRoundTrip)
+{
+    uint256 const index{2u};
+
+    auto const previousTxnIDValue = canonical_UINT256();
+    auto const previousTxnLgrSeqValue = canonical_UINT32();
+    auto const ownerValue = canonical_ACCOUNT();
+    auto const proposedTransactionValue = canonical_OBJECT();
+    auto const expirationValue = canonical_UINT32();
+    auto const ownerNodeValue = canonical_UINT64();
+
+    auto sle = std::make_shared<SLE>(TransactionProposal::entryType, index);
+
+    sle->at(sfPreviousTxnID) = previousTxnIDValue;
+    sle->at(sfPreviousTxnLgrSeq) = previousTxnLgrSeqValue;
+    sle->at(sfOwner) = ownerValue;
+    sle->setFieldObject(sfProposedTransaction, proposedTransactionValue);
+    sle->at(sfExpiration) = expirationValue;
+    sle->at(sfOwnerNode) = ownerNodeValue;
+
+    TransactionProposalBuilder builderFromSle{sle};
+    EXPECT_TRUE(builderFromSle.validate());
+
+    auto const entryFromBuilder = builderFromSle.build(index);
+
+    TransactionProposal entryFromSle{sle};
+    EXPECT_TRUE(entryFromBuilder.validate());
+    EXPECT_TRUE(entryFromSle.validate());
+
+    {
+        auto const& expected = previousTxnIDValue;
+
+        auto const fromSle = entryFromSle.getPreviousTxnID();
+        auto const fromBuilder = entryFromBuilder.getPreviousTxnID();
+
+        expectEqualField(expected, fromSle, "sfPreviousTxnID");
+        expectEqualField(expected, fromBuilder, "sfPreviousTxnID");
+    }
+
+    {
+        auto const& expected = previousTxnLgrSeqValue;
+
+        auto const fromSle = entryFromSle.getPreviousTxnLgrSeq();
+        auto const fromBuilder = entryFromBuilder.getPreviousTxnLgrSeq();
+
+        expectEqualField(expected, fromSle, "sfPreviousTxnLgrSeq");
+        expectEqualField(expected, fromBuilder, "sfPreviousTxnLgrSeq");
+    }
+
+    {
+        auto const& expected = ownerValue;
+
+        auto const fromSle = entryFromSle.getOwner();
+        auto const fromBuilder = entryFromBuilder.getOwner();
+
+        expectEqualField(expected, fromSle, "sfOwner");
+        expectEqualField(expected, fromBuilder, "sfOwner");
+    }
+
+    {
+        auto const& expected = proposedTransactionValue;
+
+        auto const fromSle = entryFromSle.getProposedTransaction();
+        auto const fromBuilder = entryFromBuilder.getProposedTransaction();
+
+        expectEqualField(expected, fromSle, "sfProposedTransaction");
+        expectEqualField(expected, fromBuilder, "sfProposedTransaction");
+    }
+
+    {
+        auto const& expected = expirationValue;
+
+        auto const fromSle = entryFromSle.getExpiration();
+        auto const fromBuilder = entryFromBuilder.getExpiration();
+
+        expectEqualField(expected, fromSle, "sfExpiration");
+        expectEqualField(expected, fromBuilder, "sfExpiration");
+    }
+
+    {
+        auto const& expected = ownerNodeValue;
+
+        auto const fromSle = entryFromSle.getOwnerNode();
+        auto const fromBuilder = entryFromBuilder.getOwnerNode();
+
+        expectEqualField(expected, fromSle, "sfOwnerNode");
+        expectEqualField(expected, fromBuilder, "sfOwnerNode");
+    }
+
+    EXPECT_EQ(entryFromSle.getKey(), index);
+    EXPECT_EQ(entryFromBuilder.getKey(), index);
+}
+
+// 3) Verify wrapper throws when constructed from wrong ledger entry type.
+TEST(TransactionProposalTests, WrapperThrowsOnWrongEntryType)
+{
+    uint256 const index{3u};
+
+    // Build a valid ledger entry of a different type
+    // Ticket requires: Account, OwnerNode, TicketSequence, PreviousTxnID, PreviousTxnLgrSeq
+    // Check requires: Account, Destination, SendMax, Sequence, OwnerNode, DestinationNode, PreviousTxnID, PreviousTxnLgrSeq
+    TicketBuilder wrongBuilder{
+        canonical_ACCOUNT(),
+        canonical_UINT64(),
+        canonical_UINT32(),
+        canonical_UINT256(),
+        canonical_UINT32()};
+    auto wrongEntry = wrongBuilder.build(index);
+
+    EXPECT_THROW(TransactionProposal{wrongEntry.getSle()}, std::runtime_error);
+}
+
+// 4) Verify builder throws when constructed from wrong ledger entry type.
+TEST(TransactionProposalTests, BuilderThrowsOnWrongEntryType)
+{
+    uint256 const index{4u};
+
+    // Build a valid ledger entry of a different type
+    TicketBuilder wrongBuilder{
+        canonical_ACCOUNT(),
+        canonical_UINT64(),
+        canonical_UINT32(),
+        canonical_UINT256(),
+        canonical_UINT32()};
+    auto wrongEntry = wrongBuilder.build(index);
+
+    EXPECT_THROW(TransactionProposalBuilder{wrongEntry.getSle()}, std::runtime_error);
+}
+
+}

src/tests/libxrpl/protocol_autogen/transactions/TransactionProposalCreateTests.cpp

@@ -0,0 +1,162 @@
+// Auto-generated unit tests for transaction TransactionProposalCreate
+
+
+#include <gtest/gtest.h>
+
+#include <protocol_autogen/TestHelpers.h>
+
+#include <xrpl/protocol/SecretKey.h>
+#include <xrpl/protocol/Seed.h>
+#include <xrpl/protocol/STTx.h>
+#include <xrpl/protocol_autogen/transactions/TransactionProposalCreate.h>
+#include <xrpl/protocol_autogen/transactions/AccountSet.h>
+
+#include <string>
+
+namespace xrpl::transactions {
+
+// 1 & 4) Set fields via builder setters, build, then read them back via
+// wrapper getters. After build(), validate() should succeed.
+TEST(TransactionsTransactionProposalCreateTests, BuilderSettersRoundTrip)
+{
+    // Generate a deterministic keypair for signing
+    auto const [publicKey, secretKey] =
+        generateKeyPair(KeyType::Secp256k1, generateSeed("testTransactionProposalCreate"));
+
+    // Common transaction fields
+    auto const accountValue = calcAccountID(publicKey);
+    std::uint32_t const sequenceValue = 1;
+    auto const feeValue = canonical_AMOUNT();
+
+    // Transaction-specific field values
+    auto const proposedTransactionValue = canonical_OBJECT();
+    auto const expirationValue = canonical_UINT32();
+
+    TransactionProposalCreateBuilder builder{
+        accountValue,
+        proposedTransactionValue,
+        expirationValue,
+        sequenceValue,
+        feeValue
+    };
+
+    // Set optional fields
+
+    auto tx = builder.build(publicKey, secretKey);
+
+    std::string reason;
+    EXPECT_TRUE(tx.validate(reason)) << reason;
+
+    // Verify signing was applied
+    EXPECT_FALSE(tx.getSigningPubKey().empty());
+    EXPECT_TRUE(tx.hasTxnSignature());
+
+    // Verify common fields
+    EXPECT_EQ(tx.getAccount(), accountValue);
+    EXPECT_EQ(tx.getSequence(), sequenceValue);
+    EXPECT_EQ(tx.getFee(), feeValue);
+
+    // Verify required fields
+    {
+        auto const& expected = proposedTransactionValue;
+        auto const actual = tx.getProposedTransaction();
+        expectEqualField(expected, actual, "sfProposedTransaction");
+    }
+
+    {
+        auto const& expected = expirationValue;
+        auto const actual = tx.getExpiration();
+        expectEqualField(expected, actual, "sfExpiration");
+    }
+
+    // Verify optional fields
+}
+
+// 2 & 4) Start from an STTx, construct a builder from it, build a new wrapper,
+// and verify all fields match.
+TEST(TransactionsTransactionProposalCreateTests, BuilderFromStTxRoundTrip)
+{
+    // Generate a deterministic keypair for signing
+    auto const [publicKey, secretKey] =
+        generateKeyPair(KeyType::Secp256k1, generateSeed("testTransactionProposalCreateFromTx"));
+
+    // Common transaction fields
+    auto const accountValue = calcAccountID(publicKey);
+    std::uint32_t const sequenceValue = 2;
+    auto const feeValue = canonical_AMOUNT();
+
+    // Transaction-specific field values
+    auto const proposedTransactionValue = canonical_OBJECT();
+    auto const expirationValue = canonical_UINT32();
+
+    // Build an initial transaction
+    TransactionProposalCreateBuilder initialBuilder{
+        accountValue,
+        proposedTransactionValue,
+        expirationValue,
+        sequenceValue,
+        feeValue
+    };
+
+
+    auto initialTx = initialBuilder.build(publicKey, secretKey);
+
+    // Create builder from existing STTx
+    TransactionProposalCreateBuilder builderFromTx{initialTx.getSTTx()};
+
+    auto rebuiltTx = builderFromTx.build(publicKey, secretKey);
+
+    std::string reason;
+    EXPECT_TRUE(rebuiltTx.validate(reason)) << reason;
+
+    // Verify common fields
+    EXPECT_EQ(rebuiltTx.getAccount(), accountValue);
+    EXPECT_EQ(rebuiltTx.getSequence(), sequenceValue);
+    EXPECT_EQ(rebuiltTx.getFee(), feeValue);
+
+    // Verify required fields
+    {
+        auto const& expected = proposedTransactionValue;
+        auto const actual = rebuiltTx.getProposedTransaction();
+        expectEqualField(expected, actual, "sfProposedTransaction");
+    }
+
+    {
+        auto const& expected = expirationValue;
+        auto const actual = rebuiltTx.getExpiration();
+        expectEqualField(expected, actual, "sfExpiration");
+    }
+
+    // Verify optional fields
+}
+
+// 3) Verify wrapper throws when constructed from wrong transaction type.
+TEST(TransactionsTransactionProposalCreateTests, WrapperThrowsOnWrongTxType)
+{
+    // Build a valid transaction of a different type
+    auto const [pk, sk] =
+        generateKeyPair(KeyType::Secp256k1, generateSeed("testWrongType"));
+    auto const account = calcAccountID(pk);
+
+    AccountSetBuilder wrongBuilder{account, 1, canonical_AMOUNT()};
+    auto wrongTx = wrongBuilder.build(pk, sk);
+
+    EXPECT_THROW(TransactionProposalCreate{wrongTx.getSTTx()}, std::runtime_error);
+}
+
+// 4) Verify builder throws when constructed from wrong transaction type.
+TEST(TransactionsTransactionProposalCreateTests, BuilderThrowsOnWrongTxType)
+{
+    // Build a valid transaction of a different type
+    auto const [pk, sk] =
+        generateKeyPair(KeyType::Secp256k1, generateSeed("testWrongTypeBuilder"));
+    auto const account = calcAccountID(pk);
+
+    AccountSetBuilder wrongBuilder{account, 1, canonical_AMOUNT()};
+    auto wrongTx = wrongBuilder.build(pk, sk);
+
+    EXPECT_THROW(TransactionProposalCreateBuilder{wrongTx.getSTTx()}, std::runtime_error);
+}
+
+
+}

src/xrpld/rpc/handlers/ledger/LedgerEntry.cpp

@@ -741,6 +741,30 @@ parseSponsorship(
     return keylet::sponsorship(*sponsorID, *sponseeID).key;
 }
 
+static std::expected<uint256, json::Value>
+parseTransactionProposal(
+    json::Value const& params,
+    json::StaticString const fieldName,
+    [[maybe_unused]] unsigned const apiVersion)
+{
+    if (!params.isObject())
+        return parseObjectID(params, fieldName, "hex string");
+
+    auto const targetID =
+        LedgerEntryHelpers::requiredAccountID(params, jss::account, "malformedAddress");
+    if (!targetID)
+        return std::unexpected(targetID.error());
+
+    // The proposed transaction's TicketSequence (a proposed transaction is
+    // ticket-only), mirroring how parseTicket looks up a Ticket object.
+    auto const ticketSequence =
+        LedgerEntryHelpers::requiredUInt32(params, jss::ticket_seq, "malformedRequest");
+    if (!ticketSequence)
+        return std::unexpected(ticketSequence.error());
+
+    return keylet::txProposal(*targetID, *ticketSequence).key;
+}
+
 static std::expected<uint256, json::Value>
 parseTicket(
     json::Value const& params,