In a wide heavy pan over medium-low, melt 1 1/2 tablespoons ghee. Add almond flour. Stir and toast 2 to 3 minutes until the raw almond smell fades and the flour looks sandy.
In a cup, combine the remaining cold milk, water, steeped saffron milk (including strands), sugar, cardamom, rose water, and salt. Stir until sugar dissolves.
Reduce heat to low. Pour the milk mixture into the pan in a thin stream, stirring constantly. It will sputter; pour slowly.
Cook on low, scraping the bottom often, 9 to 13 minutes. The halwa will thicken, darken slightly, and pull away from the sides in a cohesive mass.
Stir in the remaining 1/2 tablespoon ghee. Cook 1 minute more. Cool a pea-sized dab on a plate 2 minutes. It should hold a soft ball that does not collapse flat. If it spreads like thick batter, cook 2 to 4 more minutes and retest.
Scrape halwa into a bowl. Press plastic wrap directly on the surface. Refrigerate at least 2 hours, or overnight.