Policy Brief, Oct 2025
Dr. Fadel ELZUBI
Where is the Higher Council for Food Security in Guiding the Compass on Milk Powder?
For years, Jordan has witnessed an intense debate over an issue that may appear technical on the surface, but in reality strikes at the very core of national food security: the use of milk powder in the dairy industry, the limits of its importation, and the regulations governing its use. Some may view this as a matter concerning only industrialists or importers, but in truth it extends far beyond that, touching the fate of a vital sector that provides livelihoods for thousands of rural and Bedouin families, and stands as a cornerstone of local food sustainability.
Today, Jordan produces more than 1,200 tons of fresh milk daily, up from just 900 tons five years ago. This remarkable improvement reflects cumulative efforts in breed enhancement, the development of feeding systems, the application of advanced veterinary practices, and continuous monitoring of production quality.
It is estimated that the number of dairy cows exceeds 90,000 head, while nearly 200 factories and plants rely on local milk as a primary raw material. The sector contributes roughly 3% of agricultural GDP, employs thousands of workers, and supports dozens of related activities, from transport and cooling to processing and marketing.
Yet this national achievement now faces a growing challenge: the expansion of milk powder imports without sufficient regulation of quantities and uses. When milk powder is 30–40% cheaper than fresh local milk, the temptation to rely on it becomes strong, particularly for factories seeking to reduce production costs. But unless carefully regulated, this trend could flood the market, reduce demand for fresh milk, and inflict direct losses on dairy farmers—forcing some out of business altogether.
The concern is not merely unfair competition, but the gradual erosion of local milk production. Other countries have faced similar outcomes: in India, rising imports led to an 18% decline in fresh milk production within five years, while Brazil lost more than 20,000 small farms between 2010 and 2020 due to unequal competition.
In Jordan, the Ministry of Agriculture has long overseen this file through a technical committee that includes representatives from the Ministries of Industry and Trade, Customs, the Food and Drug Administration, the Standards and Metrology Organization, as well as farmers and manufacturers. This committee succeeded in establishing clear technical standards for importing milk powder, aligned with the Codex Alimentarius, which limited commercial fraud and ensured transparency in blending ratios between powdered and fresh milk.
However, the recent transfer of this file to the Ministry of Industry and Trade has raised serious questions about the compatibility of this decision with the agricultural and production-based approach upon which food security rests. Milk—like meat and grains—is not merely an industrial product, but a fundamental component of the agricultural and livestock value chain. It must be managed within a production framework that balances the interests of farmers, consumers, and manufacturers alike.
This leads to the pressing question: Where is the Higher Council for Food Security in this matter?
The Higher Council for Food Security was established under the Economic Modernization Vision to serve as the supreme national authority unifying decisions and policies across all food-related sectors, linking production with consumption, trade with storage, and agriculture with industry. It is the body capable of providing independent scientific advice, free from sectoral rivalries or partial interests.
Through its technical units, the Council has the capacity to analyze the quantitative and qualitative impacts of any import decision, and to assess its implications for the national self-sufficiency index—which currently stands at only 55% for fresh milk. It can also propose measures that balance support for local production with ensuring affordable prices for consumers.
According to FAO data, countries with effective national food security councils—such as Canada, the Netherlands, and France—have maintained self-sufficiency levels in milk exceeding 85%, thanks to coordination between producers, processors, and importers, as well as smart management of milk powder stocks in domestic markets.
Ignoring the Council’s role in such a critical issue weakens Jordan’s food governance system and opens the door to fragmented decisions that could disrupt agricultural supply chains. This is not merely about an industrial input, but about a core protein source in the national food basket, with direct implications for citizens’ health, food security, and economic stability.
The solution is not to close the door on milk powder imports, but to reorient the compass under the leadership of the Higher Council for Food Security, enabling it to guide a balanced, evidence-based dialogue among all stakeholders: farmers, manufacturers, consumers, and government. The goal is to build a win-win equation: protecting national production, developing local industry, and ensuring safe, affordable food for the Jordanian consumer.
Jordan has repeatedly proven its ability to strike a balance between market demands and safeguarding food security—provided that major decisions are taken within an inclusive institutional framework grounded in science and data, not short-term pressures.
Food security is not a slogan, but an integrated system of policies, governance, and national awareness. The Higher Council for Food Security is its compass, and it must not be absent from any decision that affects the food of Jordanians—today or tomorrow.
To move beyond endless debate, addressing the milk powder file requires clear steps led by the Higher Council for Food Security, including:
- Establishing a national database covering local milk production, processing capacity, and consumption levels, to serve as a reference for decision-making.
- Setting a flexible annual ceiling for milk powder imports linked to local production levels, to be reviewed every six months.
- Launching an electronic tracking system connecting factories with regulatory bodies to document the ratios of milk powder used in final products.
- Conducting regular studies on the economic and social impacts of import policies on farmers, factories, and consumers.
- Making the Council’s involvement mandatory in any decision or legislation affecting essential items in the national food basket, foremost among them milk.
With these measures, Jordan can preserve the independence of its food policy, balance market dynamics with national security needs, and ensure that the Jordanian food basket remains safe and sustainable.