Jordan's Water and Sanitation Sector

UNCLAS AMMAN 008401 SIPDIS SENSITIVE SIPDIS State for OES/PCI - Salzberg and Blaine State also for NEA/ELA and NEA/RA - Lawson USAID for Miller and Deely and for ANE Cairo for USAID - David Barth E.O. 12958: N/A TAGS: SENV EAID PGOV EAGR JO SUBJECT: Jordan's Water and Sanitation Sector Ref: A) State 128229 B) Amman 2108 ¶1. (SBU) Summary: Jordan is a country that is critically and chronically short of water. It has immense needs in its water and sanitation sector. There is much potential for enhancing the already significant USG engagement in this sector. A coordinated, multi-agency approach within the USG will promote a proper balance between infrastructure and a focus on water policy. Improvements are under way, but are sometimes slowed or thwarted by bureaucratic obstacles. Jordan is an excellent base for regional water initiatives. End summary. -------------- USAID Water Program -------------- ¶2. (U) The USG began helping Jordan cope with water and sanitation problems 50 years ago. USAID is by far the largest donor in Jordan's water sector, and is currently supporting approximately 30 projects. The annual USAID/Jordan budget for water and environment activities is $45 million, with another $20 million equivalent of local currency. When completed, these activities will benefit more than three million Jordanians. Potable water supplies will have increased by more than 40 percent in Amman, 15 percent in Aqaba, and 20 percent in the Northern Governorates. About 62.6 million gallons per day of reclaimed water will be made available from new and upgraded wastewater treatment plants. Additional activities with the GOJ help to improve water policy and enforcement. Industrial collaboration helps reduce water demand and improves the quality of wastewater discharges. At the local level, efforts focus on in-house management of water and increased productivity per unit of on-farm water used. ¶3. (U) The commitment to partner with the U.S. is documented by these 50 years of collaboration and the many important achievements reached over that time. The majority of investment has been in infrastructure improvements that have resulted in better services to millions of Jordanians. Over the past decade, USAID has supported the GOJ in water sector policy development, planning, and resource management. The focus has been on water resources monitoring, laboratory analysis, and information systems. USAID work has helped develop Jordan's first National Water Strategy, as well as a series of policy statements on groundwater, wastewater, irrigation, and utility management. There is still much to be done. A balanced program between additional infrastructure improvements and policy focus will remain the Mission's goal. -------------- Assessing Jordan's Needs -------------- ¶4. (U) In spite of the significant, continuing bilateral cooperation, Jordan is still one of the ten driest countries in the world, and the needs in water and sanitation are huge. Total projected gross water demand is expected to reach about 1,610 million cubic meters (MCM) per year by 2020, but the annual long-term average volume of usable water is about 683 MCM per year. The GOJ estimates that groundwater is being used at twice the replenishment rate. Only about 55% of the Jordan population is connected to a wastewater collector network. Those not connected to wastewater disposal systems rely on cesspits and other on-site facilities. Up to half of the water pumped for urban use is lost within distribution systems. Water rationing is common due to shortages. -------------- -------------- Jordan's Commitment to Water and Sanitation Issues -------------- -------------- ¶5. (SBU) To address its water issues, the GOJ has developed a National Water Master Plan (NWMP). The NWMP proposes to satisfy water demand with stringent water conservation policies and programs, and with new water from identified and yet-to-be identified sources. The GOJ often looks to donors, and particularly USAID, where there has been a long and productive relationship, to construct new infrastructure and to rehabilitate existing infrastructure. ¶6. (U) The GOJ's preferred solution to drinking water shortages in Amman is the construction of three mega-projects. The first is the USAID-supported $104 million Zara Ma'in project to design and construct a desalination plant and water conveyance system. Zara Ma'in will provide over 40 million cubic meters (MCM) of water per year to the Greater Amman area. The plant is in start-up mode, and is currently operating at 25% capacity. It should be completed within a year. ¶7. (SBU) The second large water supply project is a proposed Build-Own-Transfer system to deliver 100 MCM per year of groundwater to Amman from the Disi Aquifer near Aqaba (ref B). Since the Disi project is designed to tap into a non-renewable fossil aquifer, the project needs to ensure that the water is used only for high value uses. The third proposed GOJ mega-solution is the multi-billion dollar Red Sea - Dead Sea Conveyance project, which would produce about 800 MCM per year of desalinated water for Jordan, the Palestinian areas, and Israel (ref B). Note: It remains to be seen whether these latter two projects make environmental and economic sense. On Red-Dead, the USG has not taken a position on the project itself, but has committed to a $1.5 million contribution to a feasibility study that will address the technical, economic, environmental, and social aspects of the project. End note. -------------- Successful Models Exist -------------- ¶8. (U) Over the years, there has been a great deal of success in improving water and wastewater infrastructure through USG-Jordan collaboration. There is also a fledgling reform movement in the water sector. Public sector utilities are beginning to move towards commercialization. There is an interest in business-like approaches to water management, such as the Aqaba Water Company's initial success (supported by USAID). USAID is supporting the Greater Amman Municipality's move in this direction. Commercialization has sparked a host of benefits, including greater employee satisfaction, more efficient procurement of goods and services, faster consumer response time, and improved system efficiency. -------------- Many Opportunities for Continued Engagement -------------- ¶9. (U) The USAID Jordan Water Resources and Environment (WRE) program is a blend of activities to help the GOJ meet current and projected near-term future water demand, while encouraging the government to make the changes needed for long-term sustainable management of water resources. USAID has been collaborating with other USG agencies in this effort. State, through its Environmental Hub Office in Amman, is a constant and regular strategic partner in these efforts. USAID collaborates with the U.S. Geological Survey to improve groundwater management in Jordan. Collaboration with EPA has improved understanding of industrial wastewater management and areas for additional investment. The U.S. Forest Service has provided training to key GOJ staff in improved watershed management. This multi-agency approach is productive and should continue. ¶10. (SBU) Given the likelihood that smaller, decentralized, demand-based approaches will be more cost effective and successful in the long run than some of the mega projects like Disi and Red-Dead, Post interlocutors of key GoJ water policy and other officials will continue ongoing efforts at emphasizing these priorities to the GoJ. USAID is trying to work with the GOJ towards improving the inefficient water distribution network, and on charging consumers - especially in agriculture - what the water really costs. The ultimate goal of USG assistance is to promote sustainable and efficient use of water in different sectors (agriculture, industry, domestic, environment) which maximize economic return. Post will continue to emphasize to the GOJ the need for careful consideration of the long-term economic and environmental impacts of proposed solutions. ¶11. (SBU) To help mitigate the resistance in some quarters to institutional change in the Jordanian water sector and the administrative inefficiencies that hamper reform, greater involvement of stakeholders - particularly consumers - in water sector planning and decision-making is needed. As in the case of many developing and developed countries, although there is some urban planning in Jordan, initial development plans are often ignored. Plans are often changed at the will of large investors, with little thought for utility infrastructure or resource availability. The politically influential, particularly wealthy farmers, often are able to flout government water use plans. Another area for ongoing and future water policy dialogue is that of subsidized delivery of water and its negative impact on balanced economic development, utility revenues, maintenance and customer service. Mission officers will continue engaging the GoJ on these issues, with appropriate involvement of Post leadership with senior GoJ officials. -------------- Opportunities to Strengthen US Engagement -------------- ¶12. (SBU) Because of both Jordan's pressing needs and the obstacles that impede solutions, there are many additional opportunities for USG engagement in water. Policy-level recognition within the GOJ of good water management practices is paramount and a goal to be pursued vigorously by Post. Many of these opportunities build on past success or current activities, and include economic, political and technical changes, such as: ECONOMIC AND ADMINISTRATIVE CHANGES -- Encouraging water to be properly valued so that its uses in agriculture, households, industry and the environment can be properly compared; -- Regulatory reform in agriculture to encourage water conservation; -- Improving demand side management (reduction strategies) and pollution prevention in industry; -- Promoting water conservation and reuse; -- Improved water utility business practices (use of information technology, better metering, billing, and collection systems; cost recovery; establishment of corporate structures; encouraging adoption of water-conserving fixtures). GOVERNANCE -- Encouraging stronger implementation of existing water laws; -- Improved governance structures such as water user groups. TECHNICAL -- Supporting sound science for calculating the quantity of available surface water and groundwater; -- Loss reduction programs (to address leaks and unaccounted-for water); -- Wastewater treatment assessment and targeted investments in treatment infrastructure; -- Assistance to rural communities for water harvesting, landscaping, and aquifer recharge; -- Promotion of brackish water desalination; -- Promotion of use of treated wastewater, especially in agriculture. ¶13. (SBU) Post has developed a series of specific suggestions that address water policy issues. These are currently being shared among multiple offices at Post. The challenges facing Jordan's water sector are many, serious, and often deeply entrenched. They will not be resolved easily. However, a coordinated USG approach led by the Ambassador and drawing on the extensive and successful track record established by USAID represents a viable approach towards assisting the GoJ to meet these challenges. -------------- Leveraging Off Other Donors -------------- ¶14. (U) USAID is by far the largest donor in Jordan's water sector, giving the USG good leverage to implement water sector activities. Other significant donors include Japan, Germany, and the European Union, who are working to improve water distribution and wastewater systems, provide GOJ staff training, and support project administration. Several other donors have activities in the water sector, and USAID coordinates with them through regular meetings. As a result of this coordination, USAID water programs complement many individual programs undertaken by the Japanese, the Germans, the EU, the French, the Swedes, the Swiss, the GOJ, and the Jordanian private sector. The World Bank supports the Red Sea-Dead Sea Conveyance project by organizing donors and managing a trust fund for the feasibility study, to which the USG is contributing $1.5 million. There is broad consensus in the donor community about the shortcomings and needs of Jordan's water sector. The Mission will continue to coordinate with donors and share specific water policy suggestions. -------------- -- Opportunities to Leverage Work in Other Sectors -------------- -- ¶15. (U) Several opportunities exist for collaboration between USAID's Water Resources and Environment (WRE),Economic Opportunities (EO),and Social Sectors (democracy, governance, health) programs. WRE training programs can integrate with vocational training efforts from EO. Collaboration between USAID programs to improve business and environmental practices is possible, including industrial recycling and treatment of wastewater within the Qualifying Industrial Zones (QIZs). Environmentally friendly disposal of industrial effluents is another cross-cutting topic. A current WRE community-level program supports good governance, sound environmental practices, and promotion of public health. Management of medical waste supports good health practices (Health Office) and good environmental practices (WRE). -------------- -------------- Specific Programs that Might Support Post Efforts -------------- -------------- ¶16. (U) The USG, primarily through USAID, has made many significant investments in Jordan's water sector over the years. These include building infrastructure, assisting with policy and planning, and promoting alternative technologies and approaches. The USG has pushed a reform movement that could enhance efficiency, economic rationality, service delivery and system performance. Post suggests that Washington support for regionally based technical programs in water would promote better stewardship of water resources and political goodwill. NEA's EXACT Water Data Banks project, the Middle East Regional Cooperation (MERC) grants program, and MEPI funding for FTA-related environmental training are all good examples of modest investments promoting multiple goals: political engagement, environmental protection and sustainable economic development. ¶17. (U) The USG contributes in many ways to address the daunting challenges in Jordan's water sector. USG engagement at the pragmatic and the policy levels promotes economic development and improves the quality of life. HALE