# A National Water Demand Management Policy in Jordan

By **Rania A. Abdel Khaleq**

## Director Water Demand Management Unit

Ministry of Water and Irrigation

P.O. Box 2412, Amman- Jordan

E-mail: <Rania_Abdel_Khaleq@mwi.gov.jo>

and **Benedykt Dziegielewski**

Professor of Geography and Executive Director

International Water Resources Association

Faner Hall 4536, MS 4516, Southern Illinois University

Carbondale, Illinois 62901, USA

E-mail: benedykt@siu.edu

## 

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## Abstract

> Assessments and forecasts of water demand in Jordan show that demand
> already exceeds the capacity of available water resources. Therefore,
> careful consideration and control of water demand is an important
> component of integrated water resources management in the Kingdom.
> Water demand management includes planning and controlling water uses
> using social, economic and technical measures in an attempt to reach
> equilibrium between limited water resources and demand. In order to
> facilitate water demand management activities at the national level a
> Water Demand Management Unit (WDMU) has been established at the
> Jordan's Ministry of Water and Irrigation. The current and future
> water demand management activities in Jordan represent a serious
> attempt at reducing the demand on fresh water resources to match it
> with the available water before embarking on the development of
> additional supplies. The Water Demand Management Policy described in
> this paper addresses the need to bring greater efficiency to all
> sectors, including municipal, tourism, industrial and agricultural
> users of water.

**Keywords:** Water demand management, national water policies, water
conservation, policy statements.

### INTRODUCTION

Jordan is a semi arid country with very limited freshwater resources.
The availability of water is classified very low on the Water Stress
Index, which indicates the degree of water shortage. Water Stress Index
is the value of annual rainfall divided by the total population
(m^3^/capita/year). Countries with less than 1,700 m^3^/capita/year are
regarded as countries with "existing stress", while countries with less
than 1,000 m^3^/capita/year are regarded as having "scarcity" and
countries with less than 500 m^3^/capita/year are regarded as having
"absolute scarcity" according to this index. With 167 m^3^/capita/yrear
Jordan falls into the category of "absolute scarcity." In 2002 the total
use of water in Jordan was 809.8 million cubic meters (MCM) or 159
m^3^/capita/year at the total 2002 population of 5.1 million people.
This usage included 88.8 MCM of nonrenewable groundwater (groundwater
mining) and 72.4 MCM of treated wastewater. The total renewable
freshwater resources in Jordan are estimated at 850 MCM or 167
m^3^/capita/year. Table 1 shows the most recent statistical data on
water use in Jordan.

Table 1. Sources of Sectoral Water Use in Jordan in 2002

(In Million Cubic Meters per Year, MCM/year)

+-----------+----------------+--------------+-------------+----------+
| *Sector*  | *Surface       | *            | *Treated*   | *Total*  |
|           | Water*         | Groundwater* |             |          |
|           |                |              | *           | *Use*    |
|           |                |              | Wastewater* |          |
+-----------+----------------+--------------+-------------+----------+
| Municipal | 50.540         | 198.685      | 0.000       | 249.225  |
+-----------+----------------+--------------+-------------+----------+
| I         | 1.863          | 34.971       | 0.000       | 36.384   |
| ndustrial |                |              |             |          |
+-----------+----------------+--------------+-------------+----------+
| I         | 156.950        | 287.556      | 72.365      | 516.871  |
| rrigation |                |              |             |          |
+-----------+----------------+--------------+-------------+----------+
| Livestock | 6.000          | 0.835        | 0.000       | 6.835    |
+-----------+----------------+--------------+-------------+----------+
| Total     | 215.353        | 522.047      | 72.365      | 809.765  |
+-----------+----------------+--------------+-------------+----------+

The Kingdom of Jordan is facing an unremitting imbalance between the
total sectoral water demands and the available supply of freshwater. By
2020, the total demand for water is expected to increase to 1,685 MCM
because of the large increases in population, improvements in living
standards and growth in economic activity. While the new sources of
water supply are expected to increase the available water from the
current level of 850 MCM per year to 1,289 MCM per year by 2020, a
shortfall of 396 MCM representing 24 percent of total demand will remain
and will have to be managed through appropriate demand-reduction
programs.

Current approaches towards water resources management tend to be "supply
driven"; meaning that whenever there is a shortage, the solution usually
involves the capital investment in new water supply projects. A shift
from the traditional supply orientated approach towards one of water
conservation and demand management is essential for the sustainability
of water resources and the environment, as well as economic efficiency
and social development. However, the move towards more integrated demand
and supply approach takes a great deal of time, effort and commitment
and is currently backed by key players at many levels in the
institutional and political spectra (WMO/DIFD/UNISCO, 1999).

Demand management approach differs from supply-oriented approach by
placing more emphasis on social and economic uses of the water. When
used with current water supply management approaches, water demand
management offers the prospect of greatly improved water management in
comparison to its present status. Water demand management policy for
Jordan needs to be developed to provide a framework for water demand
management programs.

In order to address some of Jordan's water problems, a National Water
Strategy was developed and approved in 1997. Water demand management is
currently a part of the Water Strategy for Jordan (Hashmite Kingdom of
Jordan,1997), which states that "resource management shall continually
aim at achieving the highest possible efficiency in the conveyance,
distribution, application and use" of water resources. Among the 47
recommendations contained in the Strategy were the following:

-   Priority of 100 liters per capita per day for basic human needs

-   Creation of a national water data bank

-   Full utilization of all wastewater for irrigation purposes

-   Full but sustainable development of aquifer resources

-   Adoption of a five-year resource development plan

In the demand management and conservation area, the Water Strategy cites
the following:

-   Achievement of the "highest possible efficiency" in water
    conveyance,

distribution and use

-   Adoption of measures to "maximize the net benefit from the use

of a unit flow of water."

-   Definition and assignment of roles in water conservation to be
    played

by the different sectors of society.

-   Promotion of water saving systems and devices.

Although the Strategy does not identify any specific demand management
programs, it is clear that the Ministry of Water and Irrigation supports
the implementation of demand management efforts as a necessary part of
the long-term solution.

A Water Resources Management Plan has been developed for Jordan in 2001,
which examined conventional and non-conventional water resources and
discussed quantitative management and qualitative management issues, as
well as institutional and regulatory issues. The plan concluded that the
gap between demand and the available water supplies will continue to
exist, even after implanting the plan for enhancing and expanding
supplies.

The urban water demand management policy includes, a program to promote
a recognized industry for water efficient products; setting national
product standards and information; modifying building codes to increase
water use efficiency; a training program for managers and operators, a
program for peak demand reduction; a national program of audits for
large consumers, an arid landscaping program; a program to promote
rainwater use, a gray water reuse program for areas with no sewerage; a
public awareness program to achieve long term awareness and change in
attitudes of water users.; In addition, there are policies for reduction
of unaccounted for water.

The industrial water demand management policy includes the use of
economic instruments for pollution control and technological changes.
The policy also recommends using public education as a way to increase
understanding about water scarcity. Additionally, comprehensive research
activities and data collection programs are of critical importance to
support all policies. Other programs include improving equitability of
accesses through a financial assistance program. Policies for irrigated
agriculture, which is the largest user of water in Jordan, are being
formulated by the Ministry of Agriculture and are not reviewed in this
paper.

# A PROPOSED WATER DEMAND MANAGEMENT POLICY FOR JORDAN

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The Ministry of Water and Irrigation developed a Water Strategy for
Jordan and several specific policies, which include:

-   Water Utility Policy.

-   Irrigation Water Policy

-   Wastewater Management Policy, and

-   Groundwater Management Policy,

The suggested Water Demand Management Policy is developed to supplement
the already existing policies. It format follows the format as the
existing four policies which are published on the website of the
Ministry of Water and Irrigation.

**Policy Statement**

The long-term National Water Demand Management Policy of Jordan is aimed
at influencing and controlling water demand and water usage to achieve a
better utilization of the available water resources while meeting the
objectives of social and economic development of the country and
creating positive environmental impacts. The National WDM Policy is
consistent with the Water Strategy of the Kingdom and conforms to its
long-term objectives. While the policy is national, it is being
implemented by Governmental agencies with the primary responsibilities
being vested in the Ministry of Water and Irrigation.

### Specific Policy Considerations

The Water Demand Management Policy of the Hashemite Kingdom of Jordan
addresses the management of water demands in all sectors of the Jordan's
economy including municipalities, industry, tourism, agriculture and
other activities of national importance. Many provisions of this policy
are already in practice. Specific policy statements address the
following ten specific considerations:

1.  **Universal Water Metering and Loss Control** (involving tracking of
    water flows throughout water transmission, treatment and
    distribution systems with a goal to identify and repair water leaks
    and increase the proportion of water that is metered and billed to
    residential, commercial, industrial and public sector users of
    water).

2.  **Fulfilling "Unserved" Water Demands** (e.g., with a near-term goal
    to satisfy the presently unmet demands in municipal and industrial
    uses including the additional water needs of educational
    institutions and water that is required to support tourism. This
    goal will be accomplished not only by using the new sources of
    water, but also by using water savings that are achieved through the
    ongoing water demand management and water conservation and loss
    reduction programs, in addition to water recycling).

3.  **National Plumbing Standards and Water Conservation Codes**
    (primarily the development of a National Plumbing Code including the
    implementation of National Plumbing Standards with acceptable safety
    and quality requirements to ensure that all plumbing products are
    certified thus preventing the inferior products that quickly
    deteriorate and cause leaks, or products that are made of inferior
    materials but are sold as high grade from entering the market in
    Jordan).

4.  **Water Pricing and Cost Recovery** (e.g., structuring the municipal
    water and wastewater tariffs to include price incentives for water
    conservation and setting the price levels to recover the cost of
    operation and maintenance and the costs of the ongoing necessary
    capital improvements in water supply systems).

5.  **Comprehensive Water-Use Information Program** (e.g., development
    and maintenance of a comprehensive national inventory of all water
    withdrawals and uses, which is essential for understanding the
    effects of spatial and temporal patterns of water use on the
    quality, availability and sustainable use of existing water
    resources).

6.  **Public Awareness and Education** (that is consistent with the
    Water Strategy for Jordan; an ongoing public information and
    education program is needed to increase and maintain high levels of
    public awareness of the importance of water for the well-being of
    the country and its future economic and social development).

7.  **Best Management Conservation Practices** (e.g., establish a list
    of water demand best management practices, or BMPs, to be
    coordinated and implemented by the WDMU at the Ministry of Water and
    Irrigation).

8.  **Public Buildings Efficiency Improvement Program** (e.g., retrofit
    of non-conserving plumbing fixtures in all the military, the civil
    defense, intelligence services, military hospitals, royal palaces
    and other governmental and public buildings).

9.  **Water Demand Management Research and Development** (e.g., special
    studies on water use in the municipal, industrial, agricultural and
    other sectors to support and guide the ongoing water demand
    management policies and programs).

10. **Recognition of Individuals, Institutions and Industry for
    Advancement in Water Efficiency** (with an aim to establish an
    Annual Water Drop Award to recognize individuals, institutions and
    other entities for their contribution to the improvements in
    water-use efficiency in Jordan).

Other aspects of WDM policy will need to address a number of legislative
initiatives and institutional arrangements for the development and
implementation of water demand management policies and programs. The
proposed WDM Policy for Jordan will be disseminated among the water
management organizationa and the general population of the Kingdom by
developing a number of specific Policy Statements. The following section
defines some of the statements on specific issues in water demand
management.

### POLICY STATEMENTS

In terms of its main objective, the National Water Demand Management
Policy aims at a maximum utilization of water and diminishing water
waste and promoting water use efficiency and water conservation, while
maintaining the social and economic benefits of water use, and creating
positive environmental impacts.

The National WDM Policy includes the following statements, which provide
guidance for the development and implementation of demand management
measures and programs in all sectors and regions of the country.

### On the Role of Water Demand Management

1\. The idea of water conservation is not new to Jordan because in this
region of low rainfall the people had to survive by harvesting rainwater
and minimizing their water usage. This behavior has continued until
modern times as the recent survey data indicate that nearly two thirds
of the households in Amman and one third in rural areas of Jordan reuse
water within the household (IDRC study).

2\. Given the general scarcity of freshwater in the region, water demand
management and water conservation will continue to play an important
role in achieving sustainable use of freshwater resources in Jordan.

### On the Unserved Water Demand

3\. Because of the chronic shortages of water and the low efficiency of
water supply and distribution systems, the actual use of water by many
users in the urban and rural areas of the country is below the
internationally established targets of daily per capita usage. On
average, the residential water demand may be 30 to 50 percent below the
total demand, which includes the actual use and the "unserved" demand.
Water savings that will be achieved through the implementation of water
conservation programs will be an important source of additional water to
meet the unserved demands.

### On Codes and Standards. 

### 

### 4. The new Codes for buildings in Jordan include standards for showerheads, faucets, and water closets. These standards specify the maximum water use in liters per minute or liters per flush for all plumbing fixtures that are installed in newly constructed buildings. The water-efficient plumbing fixtures mandated by the Jordan's Plumbing Code will reduce national water demand and wastewater flows over time due to the installation of these fixtures in new construction and also a gradual voluntary replacement of the older less efficient fixtures with the Plumbing Code-compliant models.

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5\. Updating and adjusting current building codes to increase water use
efficiency is an important activity of the National water demand
management program.

6\. The availability and consumer adoption of water efficient fixtures
and water-efficient appliances such as dishwashers and washing machines
will also have a significant impact on future water use without
requiring any significant changes in water-using behavior or diminishing
the basic functions of this equipment. The resultant water savings will
provide monetary savings in the necessary investments on water supply
and wastewater disposal. The adoption of water-efficient appliances will
also achieve savings in energy use.

7\. At present, plumbing products sold and used in Jordan (such as
pipes, valves, tools, and other materials) do not have to go through a
certification for product quality standards. In some cases, inferior
products that quickly deteriorate and cause leaks, or products that are
made of inferior materials and sold as high grade. A Plumbing Product
Certification Program through Daman at the Jordan Institute for
Standards and Measures (JISM) could potentially save large quantities of
water by eliminating water leakage in households if the quality of
plumbing and plumbing products was improved. Once the certification
program is approved then there will be need to remove non-compliant
sanitary ware from the market possibly after a one-year grace period.

8\. An important activity of water demand management is to promote
recognized industry for water efficient products and water saving
devices.

**On Universal Water Metering and Loss Control**

9.  Given the water situation in the Kingdom, it is important to
    increase the proportion of municipal water that is metered and
    billed to residential, commercial, industrial, and public sector
    users. Universal metering of water use is part of the National Water
    Strategy. It is also important to identify and repair all water
    leaks in the distribution system.

10\. Reduction of non-revenue water and water loss is of critical
importance. This can be achieved through investment in leak detection
and repair programs and replacement of old transmission and distribution
pipelines.

### On Peak Demand Reduction

11\. Previous experiences in other countries showed that demand
reduction programs could reduce peak day demand by 20 percent. The
reduction o0f peak demands will become more important as more urban
areas in Jordan receive continuous supply of water.

**On Water Pricing and Cost Recovery**

12\. The municipal water and wastewater tariffs in Jordan provide
important economic incentives for water conservation. The tariffs are
structured to discourage high water use by charging higher prices at
higher quantities of water use. Also by setting the price levels to
recover the cost of operation and maintenance and also the costs of the
ongoing capital improvements in water supply systems provides an
additional incentive for efficient use of water. Further development and
evaluation of conservation-oriented water tariffs for both municipal and
agricultural uses of water is being undertaken by the MWI

**On Water Supply Augmentation using Rainwater Harvesting and/or Grey
Water or Other Recycled Water**

13\. Rainwater harvesting for domestic purposes in urban and rural areas
can provide a non-potable water source than can augment the existing
water supplies.

14\. Certain potable water may be replaced with recycled water. Home
gardens in rural areas with no sewerage systems can be irrigated with
gray water, which is collected from water used in sinks, showers,
bathtubs, floor drains, washing machine, and dish washing machines.
Although lower in quality the gray water is less contaminated than
toilet water. It can be easily treated on site and reused for
non-potable uses such as garden irrigation. This will help reduce house
demand on fresh water. Regulations need to be developed in this regard
to examine any health hazards that can be associate it with gray water
reuse.

**On Comprehensive Water-Use Information Program**

15\. The WDMU at the MWI has begun the development and maintenance of a
comprehensive national inventory of water withdrawals and uses. The
National data on water use are needed for the protection and monitoring
of freshwater resources of the Kingdom (especially to assess stress on
rivers and aquifers) and to assess the availability of water resources
to support the population and economic growth of the country. Reliable
estimates of water use are essential for understanding the effects of
spatial and temporal patterns of water use on the quality, availability
and sustainable use of existing water resources.

**On Public Awareness and Education**

16\. Consistent with the Water Strategy for Jordan, an ongoing public
information and school education program is needed to increase and
maintain high levels of public awareness of the importance of water for
the well-being of the country and its economic and social development.
The WDM Policy ensures that public education continues through a fixed
program that uses a variety of measures including the relevant messages
and media. Periodic survey of public opinion on adoption of water
conservation measures will be conducted to assess and enhance the
educational program.

**On Implementation of Water Demand Management Programs**

17\. The Ministry of Water and Irrigation will continue to play a
leading role in the development and implementation of WDM programs and
appropriate water efficiency measures. The WDM Unit at the Ministry is
undertaking some nationwide demand-reduction programs. These include
audits of large water consumers and the Public Buildings Efficiency
Improvement Program (i.e., retrofit of non-conserving plumbing fixtures
in buildings), in addition to an arid landscaping program and the Best
Management Conservation Practices Program, which establishes a list of
water demand management practices BMPs to be coordinated by the WDMU

### On Industrial Water Demands

18\. The industrial sector is gaining more importance in Jordan with the
Government working on crating an investment environment favorable to
increase the contribution of this sector to national economy. To meet
the growing industrial water demands, industries are encouraged to
recycle water within the industrial facility, use of lower quality water
wherever possible, reuse of treated wastewater in the industrial process
wherever possible and adopt technology that uses less quantities of
water for the same industrial product. Economic instruments for
pollution control are important in this regard.

### On Touristic Water Demands

19\. Tourism is also gaining importance in Jordan and contributing
significantly to the national economy. Programs for the Hotel Industry
about water scarcity are important; parallel with water audits are
retrofits of hotel buildings with water saving technologies. Awareness
programs that target tourists should also be considered.

### On Improving Equitability of Access though Financial Assistance

20\. To promote and affect a transition towards water demand management,
financial assistance program shall be continued to less privileged
communities. This is important because this transition will have some
cost on water users that might be prohibitive.

**On Training and Capacity Building**

21\. A water demand management-training program for all stakeholders at
the water sector forms an integral part for a water demand management
strategy.

**On Water Demand Management Research and Development**

22\. The WDM Unit and the MWI is undertaking special studies of water
use in the municipal, industrial, agricultural and other sectors. The
purpose of these studies is to support and guide the ongoing water
demand management policies and programs in the country.

23\. A competitive long-term research program on water demand management
needs to be undertaken by the Ministry in collaboration with the major
universities and research institutes in Jordan.

**On National Recognition of WDM Accomplishments**

24\. The importance of WDM in Jordan justifies the establishment of
annual awards to industrial firms, institutions and individuals for
their accomplishments in achieving greater efficiency of water use or
making notable contributions to the scientific underpinnings and
practical implementation of water demand management.

## CONCLUSIONS

This preliminary policy presented here will need to be reviewed by a
higher committee at the Ministry of Water and Irrigation. If approved,
it will be forwarded to the Council of Ministers to be debated and
approved as part of the national water policies. However, in Jordan,
there is no alternative to demand management and conditions will dictate
what water demand management programs will be needed until added
supplies, can be identified and used.

This proposed demand management measures will focus on water
conservation practices to make better use of limited supplies, but do
not mean a decline in quality of service provided but rather on a more
efficient approach to satisfying water demands. However, to be accepted
easily by the public, water demand management measures should arise from
good planning rather than water shortage crisis management situation.

## REFERENCES

Hashimite Kingdom of Jordan, Ministry of Water and Irrigation (1997)
Jordan's Water Startegy, Amman, Ministry of Water and Irrigation

Hashimite Kingdom of Jordan, Ministry of Water and Irrigation (1998)
Groundwater Management Policy, Amman, Ministry of Water and Irrigation.

IDRC Study

Yachiyo Engineering Co., LTD. (2001), The study on water resources
management in the Hashimite Kingdom of Jordan Amman Japan International
Cooperation Agency and Ministry of Water Irrigation.

Web-based publications

Maddaus, William and Maddaus, Lisa (.......) Water Demand Management
within Integrated Resource Planning Process

WMO/DFID/UNESCO workshop entitled 'Tools for Water Use and Demand
Management' (1999) Harare, Zimbabwe.

Environment Canada (1990) Water Demand Management in Canada: A
State-of-the-Art Review, Social Science Series No.23 Inland Waters
Directorate, Water Planning and Management Branch, Ottawa, Canada.