Policy Update
Purbaa Jagannath
Background
As India’s cooling needs continue to increase, the challenge for policy is at a crossroads between climate change, public health, energy security and economic development. With the rising temperature and the fast urbanisation, the expansion of infrastructure, rising household income, and growing cold-chain networks, cooling is becoming a crucial need in residential, commercial, agricultural, healthcare, transportation and industrial sectors. Nonetheless, traditional cooling systems may lead to higher electricity consumption and greenhouse gas (GHG) emissions, especially when they employ inefficient equipment or use refrigerants with high GHG emissions. To meet this challenge, MoEFCC (Ministry of Environment, Forest and Climate Change) has initiated the India Cooling Action Plan in March 2019. It has laid down a policy framework on the issue of sustainable cooling to be followed for 20 years from 2017-18 to 2037-38, making India the first country to have a comprehensive national policy on the issue. It aims at delivering sustainable cooling and thermal comfort with the achievement of environmental and socioeconomic benefits to society (MoEFCC, 2019). The ICAP aimed to achieve five major goals: Cooling demand reduction by 20–25% by 2037–38; Reduce Refrigerant demand by 25-30%; Cooling energy demand reduction by 25-40%; Priority for cooling-related research in the national science and technology programme; Train and certify 100,000 technicians in the refrigeration and air-conditioning servicing sector by 2022–23.
The plan is important because cooling is not just about how cool a consumer is. It can be used to store vaccines, preserve foods, keep agricultural supply chains cool, protect agriculture during extreme heat and promote industrial productivity and protection. Meanwhile, low-income families and people who are exposed to the heat outside, or live in a poorly-ventilated home, are at the highest risk for heat stress. The ICAP thus aims to balance the ever increasing demand for cooling with energy efficiency, climate protection and greater access to thermal comfort. The government has been working on implementing the plan since its inception with sector-specific action points, building-efficiency measures, research projects, training technicians and changing to more environmentally-friendly refrigerants. But the key policy question is whether these efforts can help deliver the long-term goals of the plan in terms of tangible cooling efficiency, cost and climate resiliency benefits.
Functioning
The ICAP does not function on its own, but rather in an integrated, cross-sectoral approach. The need for cooling encompasses various economic sectors and therefore coordination between the MoEFCC, the Bureau of Energy Efficiency (BEE), Department of Science and Technology (DST), the Ministry of Skill Development and Entrepreneurship and other relevant Ministries, Departments and Institutions (MDIs) is required for implementation.
Space cooling in buildings, cold-chain infrastructure, transport air-conditioning, domestic manufacturing and alternative refrigerants, research and development, and the servicing sector are all key areas of the plan’s implementation framework. To support this, the Government has drawn up sector-specific action points by identifying ICAP recommendations with the existing schemes and institutional responsibilities (Press Information Bureau [PIB], 2023).
In the building sector, the plan encourages energy efficient construction, enhance building envelopes, passive cooling and efficient air-conditioning equipment. The BEE’s Energy Conservation Building Code (ECBC) provides for the energy efficiency requirements for large commercial buildings and the Eco-Niwas Samhita for residential buildings. The measures aim to keep the cooling demand low until further equipment that consumes electricity is required. Second, the ICAP takes a look at refrigerant transition and domestic manufacturing. The climate impacts of the refrigerants emitted from air-conditioning and refrigeration equipment can be significant. Development and promotion of alternative products and technologies with lower GWP, therefore, is assisted and indigenous technologies and appropriate safety standards and enhanced production capacity are researched.
Third, the plan aims to enhance the cooling efficiency by a more effective servicing practice and workforce development. If not installed properly, if the refrigerant leaks or isn’t maintained, equipment performance can be compromised and energy can become an issue. Therefore, training and certification of refrigeration and air-conditioning technicians are important for achieving the environmental goals of the plan. Fourth, ICAP has the solution for cold-chain and transport cooling. Reliable refrigeration is crucial to minimise food loss, keep medicines cool and help transport temperature sensitive products. The government has since released sector-specific research and strategies on sustainable cold chain infrastructure, public procurement and the use of trained servicing professionals.
Last but not least, the research and development support the plan’s longer-term implementation. The government has been promoting research on low Global Warming Potential (GWP) refrigerants and safety norms, such as that with the Council of Scientific and Industrial Research (CSIR), Indian Institute of Chemical Technology and academic institutions. They aim to build up the domestic technological capacities and decrease the reliance on inappropriate or environmentally harmful cooling technologies (PIB, 2022, 2023).
Performance
This performance needs to be measured by the difference between creating mechanisms for implementation and actual measurable progress towards the future goals of the ICAP for 2037–38. The initial results of the plan are mainly related to the formulation of plans of action at the sector level, the drafting of rules, the implementation of research projects, and the coordination of institutions, as these developments are expected to result from the plan in the long-term.
An important step that has been taken towards the operationalization of the plan has been the translation of the recommendations of the plan into action points. The government has completed implementation plans for space cooling in buildings, cold-chain infrastructure and domestic manufacturing and alternative refrigerants, research and development, and the servicing sector by 2023. This is a step forward towards building an administrative structure for a policy with inter-ministerial and inter-industry goals (PIB, 2023).
Another measurable indicator of progress is through technician training. The government had announced in March 2022 that 43,450 refrigeration and air-conditioning service technicians were trained and certified under the National Skill Qualification Framework and Pradhan Mantri Kaushal Vikas Yojana. It also indicated the number of additional 29,000 technicians trained under the Montreal Protocol (PIB, 2022) in the context of hydrochlorofluorocarbon phase-out management plans. The figures indicate training capacity growth but they are not a proof of the ICAP’s target of 100 000 certified technicians by 2022–23.
The difference is important since it is not the same outcome as planned training, continuous training, and/or certification. The ongoing transition to the new list of refrigerants has also been helped by India’s previous obligations under the Montreal Protocol and the Kigali Amendment. The MoEFCC, in September 2023, also issued additional plans on alternatives to refrigerants, R&D and the servicing industry. It also highlighted research collaboration with Indian Institutes of Technology to promote the development of low-global-warming-potential refrigerants (PIB, 2023). In April 2026, the Ministry of Science and Technology announced that the implementation of ICAP was taking place in over 250 cities, more recently.
This announcement is indicative of the geographical extent of cooling related activities and not a reflection of the level of implementation of the plan at the city level, nor is it a measure of the extent to which the national demand reduction targets have been met (PIB, 2026). The principle constraint is the lack of a clear and publicly available measure of achievement against all the headline targets. Although information on the implementation of schemes, training, research and geographical coverage is useful, it does not replace information on cooling demand, energy consumption, refrigerant use and emissions.
However, as a result, the ICAP has advanced its implementation architecture, and overall effectiveness can only be evaluated based on administrative progress. A clear monitoring structure and the consistent reporting of baseline data and independent assessment is required to determine if the plan is achieving its goals.
Impact
ICAP serves as an important policy instrument for the Indian climate policy, the energy system, public health and economic development. Its potential benefits go beyond minimizing the impact of air-conditioning equipment on the environment, to increasing the efficiency and reliability of cooling services throughout the economy. The plan tackles direct and indirect emissions from cooling from a climate point of view. The main sources of direct emissions are the refrigerator emissions, and the main sources of indirect emissions are the electricity consumed by cooling equipment. Therefore, the improvement of equipment efficiency, reduction of leakage and transition to refrigerants with lower GWP can help to mitigate climate change.
The implementation of the Kigali Amendment supplementing the Montreal Protocol is another critical and complementary measure for a phasedown of hydrofluorocarbons (HFCs) which also contribute to warming, but do not deplete the ozone layer (PIB, 2023). The plan also has implications for electricity demand and energy security. The growing prevalence of access to air conditioning and refrigeration can add stress to electricity generation, electricity distribution and peak-load management systems if cooling is not done efficiently. Passive cooling, energy-efficient buildings and better appliance efficiency can help to relieve this pressure.
These are especially important in fast-growing urbanizing regions where the design of buildings and urban development can determine cooling needs for 20 or even 30 years.
The public health aspect is also significant. Outdoor workers, older people, children and those who live in poorly ventilated, overcrowded housing are all at risk of the effects of extreme heat. Exposure to dangerous temperatures can be reduced if there is access to cooling, but access is unequal. To design a sustainable cooling strategy, it is thus necessary to consider not only the efficiency of cooling technologies, but also the capacity of vulnerable groups to protect themselves from heat.
The ICAP also impacts agriculture, food security and health care. Better cold chain facilities can aid in the preservation and transport of perishable agricultural products, vaccines and temperature-sensitive medicines. Better refrigeration and storage can help minimize losses and increase food supply chain security. The benefits, however, will rely upon the cost of the infrastructure being built, the access to this infrastructure and its reliability. Another possible impact may be in employment and industrial development. The introduction of efficient cooling technologies and their service networks, along with domestic development of refrigerants, can provide opportunities for skilled jobs and technological innovation.
Technician training is especially crucial as the quality of installation and maintenance impacts on the efficiency of the equipment, leakage and operational safety. However, the sharing of these benefits must not be taken for granted. Efficient air-conditioners can be too costly for the poor or adapting passive cooling to informal settlements could be challenging. Likewise, investments in cold-chains do not necessarily go to small farmers or to faraway places. The ICAP’s overall success then hinges on how accessible it is, whether it comes with infrastructure that is inclusive, and whether it results in measurable changes to thermal comfort.
Emerging Issues
There are several structural issues that remain to affect the implementation of ICAP.
The first is the disconnect between long-term goals and accountability measures. The plan sets national goals for 2037–38, but due to its cross-sectoral nature, it is challenging to attribute progress to specific programmes or institutions. It is hard to know with any regularity and comparable reporting whether reductions in cooling demand and energy requirements are taking place at the expected rate. The government should be able to separate out between announced measures and activities that have been completed, and outcomes that have been verified.
Second, the link between cool electricity and environmental sustainability has not been established. As temperatures climb, the cross-over cooling expansion is crucial for India, but traditional air-conditioning can drive up electricity usage and emissions. An efficiency-based approach may not address building design, urban heat, ventilation, etc., which can affect the building’s need for mechanical cooling in the first place. Finally, sustainable cooling must be achieved through the combination of efficient equipment and passive design and heat resilient planning.
Third, access to services and social inequities continue to be important issues. The homes most at risk by extreme heat are not necessarily the ones to buy energy efficient cooling equipment. People who are renting or living in informal settlements may also have neither the authority nor the resources to make their roofs, insulation and ventilation better. If the cooling transition is not targeted by public intervention, the advantages of transitioning to a cooler world could be unevenly distributed.
Fourth, the shift to LGP refrigerants is technologically, regulatory and financially challenging. New equipment designs, safety requirements, servicing practices and skills are often necessary when using alternative refrigerants. Domestic R&D and production are indeed significant; however, they should be complemented with appropriate test facilities, training of technicians, and efficient handling and recovery of refrigerants.
Fifth, coordination is needed at the ministry level, as well as at state and urban local government and private sector levels. There are institutional arrangements for building regulations and electricity policies, as well as skill-development programmes, industrial standards and climate adaptation measures. Poor coordination may lead to implementation gaps, especially as national recommendations are put into practice for local building activities and infrastructure.
Lastly, monitoring needs to address India’s varied climatic conditions and cooling needs. The cooling requirements of a humid coastal area are not the same as those of a dry inland area or a high-altitude area. A common implementation model might not be appropriate for local building materials, settlement patterns, electricity reliability and house affordability. The importance of adapting solutions to local needs was further highlighted during the Global Heat and Cooling Forum in April 2026 (PIB, 2026).
The ICAP’s task in challenging is not just to promote efficient technologies, these issues suggest. It is about establishing a coordinated, measurable, and equitable cooling system that is able to respond to increases in temperature without causing unnecessary energy demands and exacerbating inequalities.
Way Forward
India’s cooling strategy needs to shift from the general and vague goal of the ICAP to a clear and concise implementation plan with measurable targets, institutional accountability and equity.
The government should first take steps to form a regular national cooling progress report. It should be to publish baseline data and annual indicators on the cooling demand, electricity consumption, refrigerant use, certification of technicians and implementation of refrigeration in the sector. If comparable data are available, it should differentiate between efficiency-improved reductions and reductions from economic shift or weather fluctuations. Independent evaluation would provide better transparency and will aid in determining poor-performing areas.
Second, implementation should focus on minimizing the cooling requirement, rather than increasing mechanical cooling dependency. With passive design, reflective roofs, shading, natural ventilation (where climatically suitable), insulation and energy-efficient building envelopes can help minimize heat exposure and electricity usage. The building codes and codes of practice should be backed by effective compliance tools, technical support, and/or incentives for energy-efficient construction and retrofitting.
Third, the need for affordable access to sustainable cooling should be made a key implementation priority. Targeted support for low-income households, public hospitals, schools, anganwadis and community facilities can ensure that cooling benefits are reaching those who are most vulnerable to the heat impact, but have limited purchasing power. These interventions should be assessed not only on their effectiveness to lessen exposure to heat but also their long-term cost effectiveness.
Fourth, India needs to build up the transition ecosystem for the refrigerants. Complementary safety standards, domestic production, training for servicing professionals, refrigerant recovery and recycling systems should be developed together with research work on the development of LGP alternatives. Public procurement can also stimulate the demand for efficient cooling equipment and qualified technicians, which can promote the improvement of industry practices.
Fifth, technician training programmes should be assessed by the achievement of completed certifications, employment results and the improvements of the servicing quality demonstrated. Programmes announced and participants signed up do not constitute training targets. Better linkage between training providers, industry and service providers and regulators could help match training with evolving technology needs.
Sixth, cooling policy needs to be combined with urban planning, heat action plans and electricity-system planning. Local governments can be able to pinpoint heat-sensitive neighbourhoods, seed and plant urban greening, enhance heat performance of public structures and integrate heat risk into development planning, where applicable. To better coordinate with electricity utilities, which will support the reduction of electricity related peak demand and increase access to reliable electricity services.
Lastly, the ICAP needs to have a differentiated implementation methodology by region and sector. Policy decisions should be based on local cooling needs and the climate as well as housing trends and the capacity of infrastructure; a single national template should not be used to govern them. There should be a role for state governments, urban local bodies, research institutions, industry and civil society in implementation and evaluation.
The ICAP will offer India an important long-term policy option to balance the increasing cooling demand with climate mitigation and development. However, it will need to go beyond publishing action plans to tangible decreases in cooling demand and emissions, and improved resilience to extreme heat and access to effective cooling solutions that are accessible to all. The cooling transition with a human-centered and a public health and environmental sustainability focused approach, can help India be more resilient to climate change and contribute to inclusive economic development.
Selected References and Important Links
- Ministry of Environment, Forest and Climate Change. (2019). India Cooling Action Plan (ICAP). Government of India. Available at: https://ozonecell.nic.in/home-page/india-cooling-action-plan/
- Press Information Bureau. (2019, March 8). India Cooling Action Plan launched. Government of India. Available at: https://www.pib.gov.in/Pressreleaseshare.aspx?PRID=1568328
- Press Information Bureau. (2022, March 14). India Cooling Action Plan. Ministry of Environment, Forest and Climate Change, Government of India. Available at: https://www.pib.gov.in/Pressreleaseshare.aspx?PRID=1805795
- Press Information Bureau. (2023, September 16). Ministry of Environment, Forest and Climate Change celebrates 29th World Ozone Day: Montreal Protocol—Fixing the ozone layer and reducing climate change. Government of India. Available at: https://www.pib.gov.in/PressReleaseIframePage.aspx?PRID=1957968
- International Energy Agency. (2021). India Cooling Action Plan (ICAP). IEA Policies Database. Available at: https://www.iea.org/policies/7455-india-cooling-action-plan-icap
- Press Information Bureau. (2026, April 20). Global warming poses threat to health, environment, and overall economy, across the world: Dr Jitendra Singh. Ministry of Science and Technology, Government of India. Available at: https://www.pib.gov.in/PressReleasePage.aspx?PRID=2253873
- Sridhar, S. (2025, November 2). India Cooling Action Plan (ICAP), 2025. IMPRI Impact and Policy Research Institute. Available at: https://www.impriindia.com/insights/india-cooling-action-plan-icap-2025/
- The Wire Science. (2018). Environment ministry’s cooling action plan is a good start but not good enough. Available at: https://science.thewire.in/environment/environment-ministry-cooling-action-plan-is-a-good-start-but-not-good-enough/
About the Contributor
Purbaa Jagannath is an intern with IMPRI, currently pursuing her master’s in Social work at Tata Institute of Social science, Mumbai. Her research interests lie in social science, governance, and social issues.
Acknowledgements
The author extends sincere gratitude to the IMPRI team for their guidance and support along with the reviewers Aditi and Prisha for their valuable feedback and insights.
Disclaimer:
All views expressed in the article belong solely to the author and not necessarily to the organization
