NCR Guideline 001/2015 — The Official Debt Counselling Task Team Agreements Rulebook
The complete National Credit Regulator framework that governs every debt review in South Africa — published as Guideline 001/2015 and indexed here clause-by-clause with NDRC practice notes.
The official NCR rules for debt review, published verbatim with our case-work commentary.
Debt counsellors, PDAs, credit providers, and consumers in debt review.
233 clauses, 6 annexures, every prescribed form, and NDRC practice notes on the most-disputed sections.
What this means for you as a consumer
These rules are not just industry plumbing. They give you specific, enforceable protections from the moment you apply for debt review.
What protections you get
What creditors cannot do
How to push back
Why this rulebook matters
The NCR Task Team Agreements are not a set of suggestions. They are the operational rules every registered debt counsellor, payment distribution agent (PDA), and credit provider in South Africa must follow when a consumer enters debt review. They define how Form 17.1 notices are issued, how creditor balances are confirmed, how restructuring proposals are calculated, what counts as a "luxurious item", and how disputes between counsellors and credit providers are resolved.
How NDRC uses it daily
Every file our team manages, from initial assessment through to clearance certificate, is governed by these rules. When a credit provider pushes back on a proposal, when a PDA queries a distribution, or when a court asks why a particular concession was offered, the answer comes from this document. We've structured it here the way we use it internally: searchable, cross-linked, and grouped by the workflow stage where each clause applies.
What's changed since 2015
The 2015 Task Team Agreements remain the binding industry standard, but interpretation has evolved. The NCR has issued supplementary guidelines (most recently NCR 005/2025 on reckless lending investigation), and several clauses have been tested in court. Where relevant, NDRC's practice notes, added progressively to high-traffic clauses, flag how the rule is being applied in 2025 and where consumers and creditors most often clash.
How to use this resource
Search by clause number (e.g. Annexure B 7.3), by topic (luxurious items, Section 86, Form 17.1), or browse the annexures below. Every clause links to its related sections and back to NDRC's plain-English explainers in our debt counselling overview.
Sections of the Guide
Front Matter
Circular, contents and issuance notice for the Debt Review Task Team Agreements of 2010 Guidelines.
Covering Report
Background to the Task Team, terms of reference, identified obstacles, and the recommended approach to compliance.
Step-by-step debt review process from Form 17.1 onwards plus expected conduct of debt counsellors, credit providers and PDAs.
Guidelines for assessing a consumer's financial position, declaring over-indebtedness, and structuring affordable repayment proposals.
Standards and parameters every debt counsellor restructuring system must meet, including outputs and audit requirements.
Industry-agreed voluntary concession rules deployed under the Section 48(1) Industry Code of Conduct to combat over-indebtedness.
Annexure E — Standard Documentation
Standard forms, templates and glossary used across the debt review process by debt counsellors, credit providers and PDAs.
Complete Table of Contents
Covering Report — Covering Report
- 1
- 1.1
- 1.2
- 1.3
- 1.4
- 2
- 2.1
- 2.2
- 2.3
- 2.4
- 2.5
- 2.6
- 3
- 3.1
- 3.1.1
- 3.1.1.1
- 3.1.1.2
- 3.1.1.3
- 3.1.1.4
- 3.1.2
- 3.1.2.1
- 3.1.2.2
- 3.1.3
- 3.1.3.1
- 3.1.3.2
- 3.1.4
- 3.1.4.1
- 3.1.5
- 3.1.5.1
- 3.1.5.2
- 4
- 4.1
- 4.2
- 4.3
Annexure A — Debt Review Process & Conduct Provisions
- 1Debt Review ProcessSection 86 debt review process overview
- 2Improved debt review process rulesStandardised process rules under the Task Team Agreement
- 2.1Form 17Form 17.1 issuance and timing
- 2.2Credit Provider Information StageInformation-gathering stage between Form 17.1 and proposal
- 2.2.1Within 5 business days of receiving FormFive-business-day Certificate of Balance window
- 2.3Affordability AssessmentHow affordability is calculated
- 2.3.1
- 2.3.2If no COBWhat happens when a credit provider misses the COB deadline
- 2.3.3
- 2.3.4If the consumerRejection at assessment stage
- 2.3.5If the consumerTen-business-day proposal deadline
- 2.3.6The debt re-arrangement proposalWhat the rearrangement proposal must contain
- 2.3.7
- 2.3.8
- 2.3.9The premiums for such insurance as well as other insuranceTreatment of credit life premiums in the proposal
- 2.3.10
- 2.3.11Within 10 business days of receiving the FormCredit provider response deadline
- 2.4Termination of Debt ReviewHow and when debt review is terminated
- 2.4.1Credit ProvidersWhen termination is prohibited
- 2.4.2
- 2.4.3
- 2.5Legal ContestationLegal route after creditor objection
- 2.5.1
- 2.5.2If consentConsent order route
- 2.5.3If consentOpposed application route
- 2.5.4
- 2.5.5
- 2.5.6The Credit ProviderCreditor objection thresholds at the contestation stage
- 3Conduct provisionsConduct standards across debt counsellors, credit providers and PDAs
- 3.1The task teamOrigin of the Task Team conduct provisions
- 3.1.1With the parties, identified a number of areas in whichConduct gaps identified by the Task Team
- 3.2With a view to improvingPurpose of the conduct improvement rules
- 3.2.1Upon the effectiveness and credibility of the debt counselingWhy standardised conduct matters to the system
- 3.3Suggested conduct of debt counselorsConduct standards for debt counsellors
- 3.3.1
- 3.3.2Debt CounsellorsCounsellor duty to verify consumer information
- 3.3.3
- 3.3.4Debt CounsellorsCounsellor record-keeping duty
- 3.3.5Debt CounsellorsCounsellor duty on creditor communication
- 3.3.6Debt CounsellorsCounsellor duty to act in the consumer's interest
- 3.4Suggested conduct by Credit ProvidersConduct standards for credit providers in debt review
- 3.4.1Credit ProvidersCredit provider duty to acknowledge Form 17.1
- 3.4.2Credit ProvidersCredit provider duty to provide accurate balances
- 3.4.3
- 3.4.4Credit ProvidersCredit provider duty to suspend collection action
- 3.4.5Credit ProvidersCredit provider duty to engage on the proposal
- 3.4.6Credit ProvidersCredit provider duty to apply consented concessions
- 3.4.8
- 3.5Suggested conduct by payment distributionPDA conduct standards
- 3.5.1PDAs should make sure that they verifyPDA verification of consumer and creditor banking details
- 3.5.2PDAs should make sure that they capture allPDA record-keeping requirements
- 3.5.3PDAs should make sure that all the partiesPDA notification duty when distribution changes
- 3.5.4PDAs should submit monthly statements to consumersConsumer's right to monthly PDA statement
- 3.5.5
- 4
Annexure B — Debt Review Assessment Guidelines
- 1.1The purpose of the Affordability Assessment of the consumerPurpose and legal basis
- 1.2When the determination in terms of SectionWhat happens when the consumer is found over-indebted
- 1.3
- 1.4
- 1.5
- 2.1
- 2.2
- 2.3To make sure that not all debtExcluding ineligible debt from the affordability assessment
- 2.4
- 3
- 3.1The Debt CounsellorCounsellor duty on gross income determination
- 3.1.1
- 3.1.2
- 3.1.3
- 3.1.4
- 3.1.5
- 3.1.6In the case of a second home, investment properties or holidayTreatment of second homes and investment properties
- 3.1.7Vehicles not used by the consumer or his or her dependants (iVehicles not used by consumer or dependants
- 3.1.8
- 3.2
- 3.3
- 3.4Reckless LendingWhen reckless lending applies
- 4Determination of Nett IncomeNet income calculation methodology
- 4.1
- 4.2The consumer(s)Net income definition for the affordability calculation
- 4.3
- 4.4
- 4.5
- 4.6Employer deductionsHow employer deductions are handled
- 4.7Use the following guidelines in respect of other incomeTreatment of bonuses, commission and irregular income
- 5Determination of Reasonable Living ExpensesLiving-expense norms used in the assessment
- 5.1The purpose of setting minimum criteriaWhy minimum living-expense criteria exist
- 5.2The proposed guidelines in the table below take into accountLiving-expense benchmark table
- 5.3Spending GuidelinesReasonable living expense guidelines
- 6
- 7.1
- 7.1.1Rental, where no bondRental as a permitted living expense
- 7.1.2Debt Counsellors could ask the following questionsDiagnostic questions to size up rental affordability
- 7.1.3Groceries (food, toiletries, cleaning materials) - groceriesGroceries as a living expense
- 7.1.4Water & Lights (if not part of rental)Water and electricity as living expenses
- 7.1.5Rates & Taxes (if consumerMunicipal rates and taxes for property owners
- 7.1.6Body corporate leviesSectional title levies as a living expense
- 7.1.7Domestic workers depending on circumstances, eDomestic worker costs in the affordability test
- 7.1.8EducationSchool fees as a living expense
- 7.1.9Consumers may apply for subsidised school feesFee exemption applications under the Schools Act
- 7.1.10Existing tertiary educationTertiary education costs already underway
- 7.1.11Transport (public transport and/or reasonable running expensesTransport costs in the affordability test
- 7.1.12Telkom phone or cellular phones or internet access withinPhone and internet as a living expense
- 7.1.13Multiple cellular phonesMultiple cellular contracts in one household
- 7.1.14Encourage consumer to set limits on cellular phone contractsCapping cellular contract spend
- 7.1.15
- 7.1.16
- 7.1.17Clothing and shoes within reason, higher amount for growingClothing budget for adults and growing children
- 7.1.18Chronic medication (obtain proof that not covered by medical aidChronic medication outside medical aid
- 7.1.19Support of relatives with valid reasonsSupport paid to relatives outside the household
- 7.1.20Financial Services - Debt CounsellorsDebt counselling fees inside the budget
- 7.1.21Medical Aid - the consumerMedical aid premiums in the affordability test
- 7.1.22Life AssuranceLife cover in the affordability test
- 7.1.23Credit Life - money that a consumer pays to an insurance companyCredit life insurance under debt review
- 7.1.24Insurance - money paid to an insurance company to protectShort-term insurance on assets
- 7.1.25Anything else that can be regarded as requiredCatch-all category for required living expenses
- 7.2
- 7.2.1
- 7.2.2
- 7.2.3Alcoholic beveragesAlcohol as a discretionary expense
- 7.2.4
- 7.2.5EntertainmentEntertainment as a discretionary expense
- 7.2.6DSTV or MNet - consider downscaling at the end of the contractDSTV and pay-TV under debt review
- 7.2.7Recreation / club membershipsClub and gym memberships
- 7.2.8
- 7.2.9Tithes / donationsTithes and religious contributions
- 7.2.10
- 7.2.11Some allowanceModest contingency allowance
- 7.3Luxurious ItemsLuxury vehicles, second properties and reasonable lifestyle
- 7.3.1Multiple propertiesMultiple property holdings under debt review
- 7.3.2
- 7.3.3
- 7.3.4Luxury vehicles used as the only means of transport by consumerLuxury vehicles as the sole household transport
- 7.3.5
- 7.3.6
- 7.3.7GamblingGambling spend under debt review
- 8Restructuring ProposalHow the rearrangement proposal is built
- 8.1Establish whether thereEquity in assets and forced disposal
- 8.2Any available cash resources, bonuses or thirteenth chequesLump sums, bonuses and thirteenth cheques
- 8.3
- 8.4
- 8.5Consider whether the consumerSupplementary income in the affordability test
- 8.6Make sure that all expenditureDocumentary support for expense lines
- 8.7
- 8.8If the consumer’s revised living expensesWhen revised expenses still exceed income
- 9Broad Guideline forSpending PatternsSpending pattern benchmarks across income bands
- 10
- 11Recognising and Dealing with Addictive BehavioursAddictive-behaviour protocol
- 12Conclusion Consumers are over-indebted if too muchDefinition of over-indebtedness
- 13Annexure b1 – Affordability Assessment Process StepsTen-step affordability process map
- 14Annexure b2 – Affordability Assessment Check ListAffordability assessment check list
- 14.1Affordability AssessmentAffordability assessment checklist entry
- 14.2Interview with ConsumerConsumer interview record requirement
- 14.3Verify Consumer DetailsIdentity and address verification
- 14.4Verify DebtDebt verification against bureau and creditor records
- 14.5Verify IncomeIncome verification documentary standard
- 14.6Check for Reckless LendingReckless lending checklist
- 14.7
- 14.8Revise BudgetBudget revision before proposal
- 14.9
- 14.10Affordability AmountFinal affordability figure used in the proposal
- 16.1Check that the rates applicable to the debtInterest rate and fee caps under Regulation 42
- 16.2Note that contracts entered into before JunePre-NCA agreements and reckless lending
- 16.3
- 16.4
- 16.5
- 16.6When the Reckless Debt IndicatorReckless lending investigation procedure
Annexure C — Minimum Debt Counselling System Requirements
- 1IntroductionPurpose of the minimum debt counselling system requirements
- 2.1The debt restructuring systemRequired outputs of restructuring software
- 2.2The systemWhat the debt restructuring system must produce
- 2.2.1A summarized debt re-arrangement proposal, whichSummarised proposal output
- 2.2.2
- 2.3
- 2.4
- 2.5
- 2.5.1The basis of allocating the amount available for distributionHow the available amount is allocated across creditors
- 2.5.2
- 2.5.3
- 2.5.4
- 2.5.5
- 2.5.6The basis for the allocation of the surplus cash, which becomesSurplus cash allocation as accounts settle
- 2.5.7
- 2.5.8The debt restructuring systemSystem auditability requirement
- 2.5.9
- 2.5.10
- 2.5.11
- 3Parameters for debt restructuring rule solutionsParameters every restructuring system must support
- 3.1The task team accordingly proposes that all debt restructuringRestructuring rules apply across the industry
- 3.1.1The debt restructuring rulesRules every system must implement
- 3.1.2All credit providersCredit provider system reciprocity
- 4.1CIF should establish a “Sub-Committee” which shouldCIF sub-committee for ongoing oversight
Annexure D — Consensual Debt Restructuring Rules
- 1IntroductionPurpose of the consensual restructuring rules
- 2
- 3
- 4Finance Charge Reduction ConcessionsInterest rate and fee concessions
- 5Repayment Term Extension LimitsMaximum term extensions by product type
- 6
Annexure E — Standard Documentation
- 1Form COB — Certificate of BalanceCertificate of Balance prescribed format
- 2Form 17.1 — Notification of Debt Review ApplicationForm 17.1 template and required fields
- 3Form 17.2 — Proposal SubmissionForm 17.2 proposal submission
- 4Form 17.3 — Termination NoticeForm 17.3 termination of debt review
- 5Standard Output Forms — Summary & Field ReferenceStandard output summary for restructuring systems
- 6Letter of Acceptance TemplateConsensus letter of acceptance template
- 7Letter of Decline TemplateConsensus letter of decline template
- 8Glossary of Terms — Standard Output FormsDefinitions used across the standard output forms
- 9Standard Documentation — OverviewStandard documentation set across the debt review process
Frequently asked about the NCR Task Team Agreements
Plain-English answers to the most-searched questions about Guideline 001/2015.
Apply these rules to your situation
The rulebook is the framework. Here is how NDRC turns it into action for you.
Get a compliant affordability assessment
Free assessment built to the Annexure B standard, so the figures hold up if a creditor challenges them.
Start free assessmentCreditor breaking the rules? Report it to the NCR
If a credit provider has ignored Form 17.1, refused a compliant proposal, or breached PDA distribution rules, the National Credit Regulator is the correct authority. NDRC is a registered debt counsellor, not the regulator.
File a complaint with the NCR Read our NCR explainer firstApply for debt review under these rules
Begin the debt review process with an NCR-registered counsellor and trigger the Form 17.1 protections covered in Annexure A.
Learn the processRelated Topic
Learn more about Debt CounsellingDiscover how debt counselling can help you manage your finances and protect your assets.