diff --git a/src/ripple/app/misc/NegativeUNLVote.cpp b/src/ripple/app/misc/NegativeUNLVote.cpp
index d2fa4c121..a9dd477a4 100644
--- a/src/ripple/app/misc/NegativeUNLVote.cpp
+++ b/src/ripple/app/misc/NegativeUNLVote.cpp
@@ -113,44 +113,40 @@ NegativeUNLVote::addReportingTx(
     hash_map<NodeID, PublicKey> const& nidToKeyMap,
     std::shared_ptr<SHAMap> const& initalSet)
 {
+    // RH NOTE: now that we use one key per txn with lots of txns
+    // this ordering step is probably not needed
     std::set<PublicKey> ordered;
-
     for (auto const& [n, score]: scoreTable)
     {
         if (score > (FLAG_LEDGER_INTERVAL>>1))
             ordered.emplace(nidToKeyMap.at(n));
     }
 
-    std::vector<STObject> av;
     for (auto const& k : ordered)
     {
-        av.emplace_back(sfActiveValidator);
-        av.back().setFieldVL(sfPublicKey, k);
-    }
+        STTx repUnlTx(ttUNL_REPORT, [&](auto& obj)
+        {
+            obj.setFieldVL(sfPublicKey, k);
+            obj.setFieldU32(sfLedgerSequence, seq);
+        });
 
-    STTx repUnlTx(ttUNL_REPORT, [&](auto& obj)
-    {
-        obj.setFieldArray(sfActiveValidators, STArray(av, sfActiveValidators));
-        obj.setFieldU32(sfLedgerSequence, seq);
-    });
-
-    
-    uint256 txID = repUnlTx.getTransactionID();
-    Serializer s;
-    repUnlTx.add(s);
-    if (!initalSet->addGiveItem(
-            SHAMapNodeType::tnTRANSACTION_NM,
-            std::make_shared<SHAMapItem>(txID, s.slice())))
-    {
-        JLOG(j_.warn()) << "R-UNL: ledger seq=" << seq
-                        << ", add ttUNL_REPORT tx failed";
-    }
-    else
-    {
-        JLOG(j_.debug()) << "R-UNL: ledger seq=" << seq
-                         << ", add a ttUNL_REPORT Tx with txID: " << txID
-                         << ", size=" << s.size()
-                         << ", " << repUnlTx.getJson(JsonOptions::none);
+        uint256 txID = repUnlTx.getTransactionID();
+        Serializer s;
+        repUnlTx.add(s);
+        if (!initalSet->addGiveItem(
+                SHAMapNodeType::tnTRANSACTION_NM,
+                std::make_shared<SHAMapItem>(txID, s.slice())))
+        {
+            JLOG(j_.warn()) << "R-UNL: ledger seq=" << seq
+                            << ", add ttUNL_REPORT tx failed";
+        }
+        else
+        {
+            JLOG(j_.debug()) << "R-UNL: ledger seq=" << seq
+                             << ", add a ttUNL_REPORT Tx with txID: " << txID
+                             << ", size=" << s.size()
+                             << ", " << repUnlTx.getJson(JsonOptions::none);
+        }
     }
 }
 
diff --git a/src/ripple/app/tx/impl/Change.cpp b/src/ripple/app/tx/impl/Change.cpp
index 880e58f9e..36c5dcbb4 100644
--- a/src/ripple/app/tx/impl/Change.cpp
+++ b/src/ripple/app/tx/impl/Change.cpp
@@ -175,14 +175,44 @@ Change::applyUNLReport()
 {
     auto sle = view().peek(keylet::UNLReport());
 
+    auto const seq = view().info().seq;
+
     bool const created = !sle;
 
     if (created)
         sle = std::make_shared<SLE>(keylet::UNLReport());
+    
+    auto const avExisting = 
+        (sle->isFieldPresent(sfPreviousTxnLgrSeq) &&
+            sle->getFieldU32(sfPreviousTxnLgrSeq) < seq)
+        ? STArray(sfActiveValidators)
+        : sle->getFieldArray(sfActiveValidators);
 
-    auto const av = ctx_.tx.getFieldArray(sfActiveValidators);
+    // canonically order using std::set
+    std::set<PublicKey> ordered;
+    for (auto const& obj: avExisting)
+    {
+        auto pk = obj.getFieldVL(sfPublicKey);
+        if (!publicKeyType(makeSlice(pk)))
+            continue;
 
-    sle->setFieldArray(sfActiveValidators, av);
+        ordered.emplace(PublicKey(makeSlice(pk)));
+    };
+
+    auto pk = ctx_.tx.getFieldVL(sfPublicKey);
+    if (publicKeyType(makeSlice(pk)))
+        ordered.emplace(PublicKey(makeSlice(pk)));
+
+    std::vector<STObject> av;
+    av.reserve(ordered.size());
+    for (auto const& k: ordered)
+    {
+        av.emplace_back(sfActiveValidator);
+        av.back().setFieldVL(sfPublicKey, k);
+    }
+
+    // update
+    sle->setFieldArray(sfActiveValidators, STArray(av, sfActiveValidators));
 
     if (created)
         view().insert(sle);
diff --git a/src/ripple/protocol/impl/SField.cpp b/src/ripple/protocol/impl/SField.cpp
index dde05c710..2f0157eee 100644
--- a/src/ripple/protocol/impl/SField.cpp
+++ b/src/ripple/protocol/impl/SField.cpp
@@ -358,8 +358,8 @@ CONSTRUCT_UNTYPED_SFIELD(sfDisabledValidators,  "DisabledValidators",   ARRAY,
 CONSTRUCT_UNTYPED_SFIELD(sfHookExecutions,      "HookExecutions",       ARRAY,     18);
 CONSTRUCT_UNTYPED_SFIELD(sfHookParameters,      "HookParameters",       ARRAY,     19);
 CONSTRUCT_UNTYPED_SFIELD(sfHookGrants,          "HookGrants",           ARRAY,     20);
-CONSTRUCT_UNTYPED_SFIELD(sfActiveValidators,    "ActiveValidators",     ARRAY,     95);
 CONSTRUCT_UNTYPED_SFIELD(sfGenesisMints,        "GenesisMints",         ARRAY,     96);
+CONSTRUCT_UNTYPED_SFIELD(sfActiveValidators,    "ActiveValidators",     ARRAY,     95);
 
 // clang-format on
 
diff --git a/src/ripple/protocol/impl/TxFormats.cpp b/src/ripple/protocol/impl/TxFormats.cpp
index 3c3633d12..c31996ae5 100644
--- a/src/ripple/protocol/impl/TxFormats.cpp
+++ b/src/ripple/protocol/impl/TxFormats.cpp
@@ -196,7 +196,7 @@ TxFormats::TxFormats()
         ttUNL_REPORT,
         {
             {sfLedgerSequence, soeREQUIRED},
-            {sfActiveValidators, soeREQUIRED},
+            {sfPublicKey, soeREQUIRED},
         },
         commonFields);