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The paper argues that while top-down regulatory measures have not yet limited global warming to 2°C, bottom-up non-state action in the refrigeration and air-conditioning (RAC) sector can fill the emissions gap. It identifies supermarkets, cold stores, and hotels as key end-users whose choices regarding energy efficiency and low-GWP refrigerants can significantly reduce carbon footprints. However, the document notes that few non-state initiatives currently target the RAC sector due to regulatory, market, and informational barriers. It suggests that alliances can help overcome these hurdles, though it emphasizes that voluntary action must be accompanied by mandatory government regulation to be effective.