India Cooling Action Plan (ICAP), 2025

Policy Update

Sivasankari Sridhar

Background

The India Cooling Action Plan (ICAP) was launched in March 2019 by the Ministry of Environment, Forest and Climate Change (MoEFCC). It provides a 20-year roadmap to ensure that the country’s growing cooling needs are met in a sustainable, affordable, and efficient way. Cooling demand in India is rising rapidly because of factors like urbanisation, rising income levels, population growth, and climate change.

In 2024, air conditioning (AC) systems in India were responsible for about 156 million tonnes (Mt) of carbon dioxide equivalent (CO₂e) emissions. These emissions come from both electricity use and leaks of refrigerants with high global warming potential. If unchecked, cooling-related emissions are expected to reach 329 Mt CO₂e by 2035.

To tackle this challenge, ICAP set the following key goals for 2037–38:

Reduce cooling demand across sectors by 20 to 25 per cent.
Reduce refrigerant demand by 25 to 30 percent.
Reduce cooling energy requirements by 25 to 40 percent.
Promote research and development in cooling and related areas under national science programmes.
Train and certify 100,000 technicians in the servicing sector by 2022–23, in alignment with the Skill India Mission.

The plan also aligns with India’s commitments under the Kigali Amendment to phase down hydrofluorocarbon (HFC) refrigerants and to improve overall energy efficiency in the cooling sector.

Functioning

ICAP serves as a policy framework that guides the work of multiple ministries, industries, and research bodies. It focuses on both technological and institutional measures to make cooling more sustainable.

Key areas of Functioning include:

Promoting energy-efficient appliances through improved labelling and minimum performance standards.
Encouraging passive cooling solutions like natural ventilation, reflective roofs, and better building design.
Expanding cold chain infrastructure for food, medicine, and vaccines to minimise spoilage.
Supporting research and innovation for low global warming potential (GWP) refrigerants and improved energy efficiency.
Building capacity in the servicing sector through skill development, safety training, and certification.

The plan also recommends integrating cooling objectives with national schemes such as the smart Cities Mission, Pradhan Mantri Awas Yojana, and the National Action Plan on Climate Change.

Performance

ICAP has influenced several government and private initiatives since its introduction. The Bureau of Energy Efficiency (BEE) expanded the Star Labelling Programme to include more appliances and introduced stronger energy performance standards. Energy Efficiency Services Limited (EESL) launched the Super-Efficient Air Conditioner programme to promote advanced cooling technologies.

Several state governments have initiated pilot projects based on ICAP principles, especially in the building and transport sectors. The servicing sector has seen gradual improvement in skill training, though large-scale certification targets are still being achieved.

Independent studies by think tanks such as the Council on Energy, Environment and Water (CEEW) and the Shakti Sustainable Energy Foundation highlight that awareness about sustainable cooling has increased significantly. However, the adoption of low-GWP refrigerants and large-scale behavioural change among consumers remains limited.

Impact

The ICAP has played a vital role in drawing attention to cooling as a developmental, energy, and climate issue. It has encouraged the government and industries to consider cooling not just as a comfort service but as a national sustainability challenge.

Early impacts are visible in policy alignment and awareness. Efficient cooling systems in public buildings and industries have reduced energy consumption. Improved cold chains have helped reduce food waste and ensure vaccine safety. The plan has also supported the creation of green jobs in servicing and maintenance.

However, despite these positive signs, cooling-related emissions continue to rise, indicating that deeper implementation efforts are still required to meet the targets set for 2037–38.

Emerging Issues

High initial cost of efficient and low-GWP cooling systems.
Gaps in training, skill development, and safety compliance.
Uneven implementation across states and ministries.
Lack of a central mechanism for tracking and reporting ICAP progress.
Insufficient consumer awareness about sustainable cooling options.

Suggestions

Encourage local manufacturing of low-GWP refrigerants and sustainable cooling equipment.
Mandate energy performance standards in all public buildings and housing schemes.
Launch public awareness campaigns on sustainable cooling and refrigerant management.
Establish a national monitoring framework to assess ICAP progress periodically.
Promote public–private partnerships to develop and deploy innovative cooling solutions..

Way Forward

India’s cooling demand is expected to rise further with economic growth and urbanisation. To ensure sustainable and inclusive development, cooling must be recognised as a key component of national climate action. Implementing ICAP effectively requires collaboration between government, industry, academia, and citizens.

By scaling up efficient technologies, improving refrigerant management, and integrating sustainable cooling into housing, transport, and agriculture policies, India can meet its growing cooling needs while reducing emissions and enhancing thermal comfort for all.

References

The Ozone Cell. (2019, March). India cooling action plan (ICAP) – e-circulation version. Ministry of Environment, Forest & Climate Change. https://ozonecell.nic.in/wp-content/uploads/2019/03/INDIA-COOLING-ACTION-PLAN-e-circulation-version080319.pdf
Press Information Bureau. (2022, March 14). India cooling action plan. Ministry of Environment, Forest & Climate Change https://pib.gov.in/PressReleasePage.aspx?PRID=1805795
Energy Efficiency Services Ltd. (2021, March 16). EESL reports reinforce the objectives of India Cooling Action Plan: District cooling systems & energy efficient ACs can be the enablers of India’s cooling revolution [Press release]. https://eeslindia.org/wp-content/uploads/2021/02/Press%20release%20-%20Launch%20of%20EESL%20reports.pdf
Dixit, H., Bhasin, S., Bhattarai, P., Mani, S., & Laha, A. K. (2023, October 25). Perceptions of refrigeration & air-conditioning service technicians on India Cooling Action Plan: Enhancing servicing sector jobs for a just transition. Council on Energy, Environment and Water. https://www.ceew.in/publications/india-cooling-action-plan-and-air-conditioning-service-sector-perceptions
Shakti Sustainable Energy Foundation. (2022, January). India Cooling Action Plan: Status & way forward – Policy brief. https://shaktifoundation.in/wp-content/uploads/2022/01/Policy-brief-ICAP.pdf

About the Contributor

Sivasankari Sridhar is currently pursuing her bachelor’s in economics from Dr B.R Ambedkar School of Economics, Bangalore and is also a research intern at IMPRI.