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    1. Home
    3. Debt Counselling
    5. Official Debt Counselling Guide
    NCR Guideline 001/2015 · 233 clauses · 6 annexures

    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.

    What this is

    The official NCR rules for debt review, published verbatim with our case-work commentary.

    Who it applies to

    Debt counsellors, PDAs, credit providers, and consumers in debt review.

    What you'll find here

    233 clauses, 6 annexures, every prescribed form, and NDRC practice notes on the most-disputed sections.

    Browse the rulebook Download original PDF

    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

    Once Form 17.1 is issued, credit providers must pause new legal action and acknowledge your application within five business days. Your accounts are placed under a debt review hold while the assessment is completed.

    What creditors cannot do

    No Section 129 letters, no summonses, no repossession action against accounts listed in the application, until either you exit the review or it is properly terminated under Form 17.3.

    How to push back

    If a creditor disputes your proposal, the answer is in these clauses. Affordability is calculated under Annexure B; PDA distribution is governed by Annexure A 3.5; reckless lending is tested under Annexure B 3.4.

    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.

    Most searched sections

    Form 17.1 noticeForm 17.2 proposalForm 17.3 terminationAffordability assessmentReckless lendingLuxurious itemsRestructuring proposalOver-indebtedness definedPDA conduct rulesRestructuring software standards

    Sections of the Guide

    pp. 1–5

    Front Matter

    Circular, contents and issuance notice for the Debt Review Task Team Agreements of 2010 Guidelines.

    2 clauses →
    pp. 6–13

    Covering Report

    Background to the Task Team, terms of reference, identified obstacles, and the recommended approach to compliance.

    34 clauses →
    pp. 14–23

    Annexure A — Debt Review Process & Conduct Provisions

    Step-by-step debt review process from Form 17.1 onwards plus expected conduct of debt counsellors, credit providers and PDAs.

    55 clauses →
    pp. 24–53

    Annexure B — Debt Review Assessment Guidelines

    Guidelines for assessing a consumer's financial position, declaring over-indebtedness, and structuring affordable repayment proposals.

    112 clauses →
    pp. 54–60

    Annexure C — Minimum Debt Counselling System Requirements

    Standards and parameters every debt counsellor restructuring system must meet, including outputs and audit requirements.

    24 clauses →
    pp. 61–66

    Annexure D — Consensual Debt Restructuring Rules

    Industry-agreed voluntary concession rules deployed under the Section 48(1) Industry Code of Conduct to combat over-indebtedness.

    6 clauses →
    pp. 67–81

    Annexure E — Standard Documentation

    Standard forms, templates and glossary used across the debt review process by debt counsellors, credit providers and PDAs.

    9 clauses →

    Complete Table of Contents

    Front Matter — Front Matter

    • 1
      Covering report
    • intro
      Front Matter — Introduction

    Covering Report — Covering Report

    • 1
      Introduction
    • 1.1
      The National Credit Regulator (NCR) set up a Task Team
    • 1.2
      Terms of Reference
    • 1.3
      Credit Industry Forum (CIF)
    • 1.4
      The aim of the Task Team Agreement remains to address
    • 2
      Approach Adopted
    • 2.1
      A thorough technical analysis
    • 2.2
      Once this analysis
    • 2.3
      Once these proposals
    • 2.4
      The various stakeholders made representations during
    • 2.5
      A set of proposed enhancements of the restructuring rules
    • 2.6
      While the Task Team
    • 3
      Key Conclusions
    • 3.1
      Main obstacles identified
    • 3.1.1
      Judicial system capacity constraints
    • 3.1.1.1
      Although the volume of cases processed by the Magistrates
    • 3.1.1.2
      Even though the NCR has implemented initiatives
    • 3.1.1.3
      It is not to the advantage of either credit providers or ove
    • 3.1.1.4
      The problem of court incapacity
    • 3.1.2
      Process weaknesses
    • 3.1.2.1
      The lack of standardisation of format and content of key
    • 3.1.2.2
      Problems related to the receipt and distribution of payments
    • 3.1.3
      Inadequate operational compliance
    • 3.1.3.1
      By debt counsellors in many instances
    • 3.1.3.2
      By credit providers in many instances
    • 3.1.4
      Lack of co-operation between credit providers and debt
    • 3.1.4.1
      The absence
    • 3.1.5
      Possible abuse of the process by consumers
    • 3.1.5.1
      There are indications that a growing number
    • 3.1.5.2
      This problem
    • 4
      Conclusion
    • 4.1
      The Task Team recommendations
    • 4.2
      Compliance to the Task Team Agreement
    • 4.3
      Should the CIF intervention not realise the required

    Annexure A — Debt Review Process & Conduct Provisions

    • 1
      Debt Review ProcessSection 86 debt review process overview
    • 2
      Improved debt review process rulesStandardised process rules under the Task Team Agreement
    • 2.1
      Form 17Form 17.1 issuance and timing
    • 2.2
      Credit Provider Information StageInformation-gathering stage between Form 17.1 and proposal
    • 2.2.1
      Within 5 business days of receiving FormFive-business-day Certificate of Balance window
    • 2.3
      Affordability AssessmentHow affordability is calculated
    • 2.3.1
      DC should conduct an assessment in accordance
    • 2.3.2
      If no COBWhat happens when a credit provider misses the COB deadline
    • 2.3.3
      If a COB
    • 2.3.4
      If the consumerRejection at assessment stage
    • 2.3.5
      If the consumerTen-business-day proposal deadline
    • 2.3.6
      The debt re-arrangement proposalWhat the rearrangement proposal must contain
    • 2.3.7
      DC should follow up on all unpaid
    • 2.3.8
      DC should
    • 2.3.9
      The premiums for such insurance as well as other insuranceTreatment of credit life premiums in the proposal
    • 2.3.10
      On receipt of all the Credit Provider responses within
    • 2.3.11
      Within 10 business days of receiving the FormCredit provider response deadline
    • 2.4
      Termination of Debt ReviewHow and when debt review is terminated
    • 2.4.1
      Credit ProvidersWhen termination is prohibited
    • 2.4.2
      Credit Providers
    • 2.4.3
      Credit Providers
    • 2.5
      Legal ContestationLegal route after creditor objection
    • 2.5.1
      Upon receipt of the Credit Providers replies to the debt
    • 2.5.2
      If consentConsent order route
    • 2.5.3
      If consentOpposed application route
    • 2.5.4
      DC should notify all the Credit Providers
    • 2.5.5
      DC should limit the number of matters
    • 2.5.6
      The Credit ProviderCreditor objection thresholds at the contestation stage
    • 3
      Conduct provisionsConduct standards across debt counsellors, credit providers and PDAs
    • 3.1
      The task teamOrigin of the Task Team conduct provisions
    • 3.1.1
      With the parties, identified a number of areas in whichConduct gaps identified by the Task Team
    • 3.2
      With a view to improvingPurpose of the conduct improvement rules
    • 3.2.1
      Upon the effectiveness and credibility of the debt counselingWhy standardised conduct matters to the system
    • 3.3
      Suggested conduct of debt counselorsConduct standards for debt counsellors
    • 3.3.1
      Debt Counsellors
    • 3.3.2
      Debt CounsellorsCounsellor duty to verify consumer information
    • 3.3.3
      Debt Counsellors
    • 3.3.4
      Debt CounsellorsCounsellor record-keeping duty
    • 3.3.5
      Debt CounsellorsCounsellor duty on creditor communication
    • 3.3.6
      Debt CounsellorsCounsellor duty to act in the consumer's interest
    • 3.4
      Suggested conduct by Credit ProvidersConduct standards for credit providers in debt review
    • 3.4.1
      Credit ProvidersCredit provider duty to acknowledge Form 17.1
    • 3.4.2
      Credit ProvidersCredit provider duty to provide accurate balances
    • 3.4.3
      Credit Providers
    • 3.4.4
      Credit ProvidersCredit provider duty to suspend collection action
    • 3.4.5
      Credit ProvidersCredit provider duty to engage on the proposal
    • 3.4.6
      Credit ProvidersCredit provider duty to apply consented concessions
    • 3.4.8
      Credit Providers
    • 3.5
      Suggested conduct by payment distributionPDA conduct standards
    • 3.5.1
      PDAs should make sure that they verifyPDA verification of consumer and creditor banking details
    • 3.5.2
      PDAs should make sure that they capture allPDA record-keeping requirements
    • 3.5.3
      PDAs should make sure that all the partiesPDA notification duty when distribution changes
    • 3.5.4
      PDAs should submit monthly statements to consumersConsumer's right to monthly PDA statement
    • 3.5.5
      PDAs should make sure that payments are made
    • 4
      Compliance, Reporting and Enforcement

    Annexure B — Debt Review Assessment Guidelines

    • 1.1
      The purpose of the Affordability Assessment of the consumerPurpose and legal basis
    • 1.2
      When the determination in terms of SectionWhat happens when the consumer is found over-indebted
    • 1.3
      This assessment of the consumer’s financial position
    • 1.4
      It is therefore required that the affordability assessment
    • 1.5
      Before a repayment proposal can be completed, an Affordability
    • 2.1
      Elegibility to apply for debt counselling
    • 2.2
      Marital Status
    • 2.3
      To make sure that not all debtExcluding ineligible debt from the affordability assessment
    • 2.4
      Temporary Loss of Income
    • 3
      Determination of Gross Income
    • 3.1
      The Debt CounsellorCounsellor duty on gross income determination
    • 3.1.1
      If the consumer
    • 3.1.2
      If the consumer
    • 3.1.3
      In some cases consumers
    • 3.1.4
      In some cases consumers
    • 3.1.5
      Should the proceeds be less than the settlement amount
    • 3.1.6
      In the case of a second home, investment properties or holidayTreatment of second homes and investment properties
    • 3.1.7
      Vehicles not used by the consumer or his or her dependants (iVehicles not used by consumer or dependants
    • 3.1.8
      In the case where the consumer
    • 3.2
      Short Term insurance on assets financed
    • 3.3
      Joint Bonds Where the consumer who applies
    • 3.4
      Reckless LendingWhen reckless lending applies
    • 4
      Determination of Nett IncomeNet income calculation methodology
    • 4.1
      On making an effective assessment
    • 4.2
      The consumer(s)Net income definition for the affordability calculation
    • 4.3
      Gross pay
    • 4.4
      Deductions for irregular income
    • 4.5
      Statutory deductions or compulsory deductions
    • 4.6
      Employer deductionsHow employer deductions are handled
    • 4.7
      Use the following guidelines in respect of other incomeTreatment of bonuses, commission and irregular income
    • 5
      Determination of Reasonable Living ExpensesLiving-expense norms used in the assessment
    • 5.1
      The purpose of setting minimum criteriaWhy minimum living-expense criteria exist
    • 5.2
      The proposed guidelines in the table below take into accountLiving-expense benchmark table
    • 5.3
      Spending GuidelinesReasonable living expense guidelines
    • 6
      Determination of Available Income
    • 7.1
      Required Expenses
    • 7.1.1
      Rental, where no bondRental as a permitted living expense
    • 7.1.2
      Debt Counsellors could ask the following questionsDiagnostic questions to size up rental affordability
    • 7.1.3
      Groceries (food, toiletries, cleaning materials) - groceriesGroceries as a living expense
    • 7.1.4
      Water & Lights (if not part of rental)Water and electricity as living expenses
    • 7.1.5
      Rates & Taxes (if consumerMunicipal rates and taxes for property owners
    • 7.1.6
      Body corporate leviesSectional title levies as a living expense
    • 7.1.7
      Domestic workers depending on circumstances, eDomestic worker costs in the affordability test
    • 7.1.8
      EducationSchool fees as a living expense
    • 7.1.9
      Consumers may apply for subsidised school feesFee exemption applications under the Schools Act
    • 7.1.10
      Existing tertiary educationTertiary education costs already underway
    • 7.1.11
      Transport (public transport and/or reasonable running expensesTransport costs in the affordability test
    • 7.1.12
      Telkom phone or cellular phones or internet access withinPhone and internet as a living expense
    • 7.1.13
      Multiple cellular phonesMultiple cellular contracts in one household
    • 7.1.14
      Encourage consumer to set limits on cellular phone contractsCapping cellular contract spend
    • 7.1.15
      Maintenance that should be paid
    • 7.1.16
      Utilities but encourage the consumer to reduce usage where usage
    • 7.1.17
      Clothing and shoes within reason, higher amount for growingClothing budget for adults and growing children
    • 7.1.18
      Chronic medication (obtain proof that not covered by medical aidChronic medication outside medical aid
    • 7.1.19
      Support of relatives with valid reasonsSupport paid to relatives outside the household
    • 7.1.20
      Financial Services - Debt CounsellorsDebt counselling fees inside the budget
    • 7.1.21
      Medical Aid - the consumerMedical aid premiums in the affordability test
    • 7.1.22
      Life AssuranceLife cover in the affordability test
    • 7.1.23
      Credit Life - money that a consumer pays to an insurance companyCredit life insurance under debt review
    • 7.1.24
      Insurance - money paid to an insurance company to protectShort-term insurance on assets
    • 7.1.25
      Anything else that can be regarded as requiredCatch-all category for required living expenses
    • 7.2
      Non-Required Expenses
    • 7.2.1
      Domestic worker/s (unless
    • 7.2.2
      Garden services
    • 7.2.3
      Alcoholic beveragesAlcohol as a discretionary expense
    • 7.2.4
      Tobacco/cigarettes
    • 7.2.5
      EntertainmentEntertainment as a discretionary expense
    • 7.2.6
      DSTV or MNet - consider downscaling at the end of the contractDSTV and pay-TV under debt review
    • 7.2.7
      Recreation / club membershipsClub and gym memberships
    • 7.2.8
      Children’s pocket money
    • 7.2.9
      Tithes / donationsTithes and religious contributions
    • 7.2.10
      Cosmetic services / beautician / pampering sessions
    • 7.2.11
      Some allowanceModest contingency allowance
    • 7.3
      Luxurious ItemsLuxury vehicles, second properties and reasonable lifestyle
    • 7.3.1
      Multiple propertiesMultiple property holdings under debt review
    • 7.3.2
      If a property
    • 7.3.3
      Boat, Jet Ski, sun bed and other “toy” items
    • 7.3.4
      Luxury vehicles used as the only means of transport by consumerLuxury vehicles as the sole household transport
    • 7.3.5
      Luxury vehicles not used by the consumer on a daily basis
    • 7.3.6
      Holiday clubs
    • 7.3.7
      GamblingGambling spend under debt review
    • 8
      Restructuring ProposalHow the rearrangement proposal is built
    • 8.1
      Establish whether thereEquity in assets and forced disposal
    • 8.2
      Any available cash resources, bonuses or thirteenth chequesLump sums, bonuses and thirteenth cheques
    • 8.3
      Consider to downsize from an expensive luxurious vehicle
    • 8.4
      If a fixed property (house)
    • 8.5
      Consider whether the consumerSupplementary income in the affordability test
    • 8.6
      Make sure that all expenditureDocumentary support for expense lines
    • 8.7
      If revised living expenses exceed income then the consumer
    • 8.8
      If the consumer’s revised living expensesWhen revised expenses still exceed income
    • 9
      Broad Guideline forSpending PatternsSpending pattern benchmarks across income bands
    • 10
      Annual Review
    • 11
      Recognising and Dealing with Addictive BehavioursAddictive-behaviour protocol
    • 12
      Conclusion Consumers are over-indebted if too muchDefinition of over-indebtedness
    • 13
      Annexure b1 – Affordability Assessment Process StepsTen-step affordability process map
    • 14
      Annexure b2 – Affordability Assessment Check ListAffordability assessment check list
    • 14.1
      Affordability AssessmentAffordability assessment checklist entry
    • 14.2
      Interview with ConsumerConsumer interview record requirement
    • 14.3
      Verify Consumer DetailsIdentity and address verification
    • 14.4
      Verify DebtDebt verification against bureau and creditor records
    • 14.5
      Verify IncomeIncome verification documentary standard
    • 14.6
      Check for Reckless LendingReckless lending checklist
    • 14.7
      Review Asset Statement
    • 14.8
      Revise BudgetBudget revision before proposal
    • 14.9
      Verify Short Term Insurance Required by Debt Agreements
    • 14.10
      Affordability AmountFinal affordability figure used in the proposal
    • 16.1
      Check that the rates applicable to the debtInterest rate and fee caps under Regulation 42
    • 16.2
      Note that contracts entered into before JunePre-NCA agreements and reckless lending
    • 16.3
      The possible reckless debt indicator needs to be completed
    • 16.4
      Where the monthly debt repayments exceed the maximums, as per
    • 16.5
      Reckless Lending Indicator
    • 16.6
      When the Reckless Debt IndicatorReckless lending investigation procedure

    Annexure C — Minimum Debt Counselling System Requirements

    • 1
      IntroductionPurpose of the minimum debt counselling system requirements
    • 2.1
      The debt restructuring systemRequired outputs of restructuring software
    • 2.2
      The systemWhat the debt restructuring system must produce
    • 2.2.1
      A summarized debt re-arrangement proposal, whichSummarised proposal output
    • 2.2.2
      A full amortization schedule for each debt included
    • 2.3
      The system
    • 2.4
      The system audit
    • 2.5
      The system
    • 2.5.1
      The basis of allocating the amount available for distributionHow the available amount is allocated across creditors
    • 2.5.2
      The basis on which the repayment obligations and repayment term
    • 2.5.3
      The basis on which credit agreements
    • 2.5.4
      The basis for extending the repayment period for different
    • 2.5.5
      The extent to which interest rate
    • 2.5.6
      The basis for the allocation of the surplus cash, which becomesSurplus cash allocation as accounts settle
    • 2.5.7
      Whether payment escalations
    • 2.5.8
      The debt restructuring systemSystem auditability requirement
    • 2.5.9
      The debt restructuring system
    • 2.5.10
      The debt restructuring software
    • 2.5.11
      Every system
    • 3
      Parameters for debt restructuring rule solutionsParameters every restructuring system must support
    • 3.1
      The task team accordingly proposes that all debt restructuringRestructuring rules apply across the industry
    • 3.1.1
      The debt restructuring rulesRules every system must implement
    • 3.1.2
      All credit providersCredit provider system reciprocity
    • 4.1
      CIF should establish a “Sub-Committee” which shouldCIF sub-committee for ongoing oversight

    Annexure D — Consensual Debt Restructuring Rules

    • 1
      IntroductionPurpose of the consensual restructuring rules
    • 2
      Eligibility Conditions
    • 3
      Conceptual Rules Framework
    • 4
      Finance Charge Reduction ConcessionsInterest rate and fee concessions
    • 5
      Repayment Term Extension LimitsMaximum term extensions by product type
    • 6
      Deployment

    Annexure E — Standard Documentation

    • 1
      Form COB — Certificate of BalanceCertificate of Balance prescribed format
    • 2
      Form 17.1 — Notification of Debt Review ApplicationForm 17.1 template and required fields
    • 3
      Form 17.2 — Proposal SubmissionForm 17.2 proposal submission
    • 4
      Form 17.3 — Termination NoticeForm 17.3 termination of debt review
    • 5
      Standard Output Forms — Summary & Field ReferenceStandard output summary for restructuring systems
    • 6
      Letter of Acceptance TemplateConsensus letter of acceptance template
    • 7
      Letter of Decline TemplateConsensus letter of decline template
    • 8
      Glossary of Terms — Standard Output FormsDefinitions used across the standard output forms
    • 9
      Standard 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

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    Get a compliant affordability assessment

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    Creditor breaking the rules? Report it to the NCR

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    File a complaint with the NCR Read our NCR explainer first

    Apply 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 process

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    Important: Debt review is a regulated legal process. While under debt review, you will be unable to obtain further credit until a Clearance Certificate (Form 19) is issued or a court order declares you no longer over-indebted.

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