The downward shift in global energy intensity has quickened its pace in recent years. But that still may not be enough to limit Earth’s temperature increase to 2 degrees Celsius, according to a new report from the International Energy Agency.

The IEA has turned its focus to energy efficiency as the cornerstone of sustainable energy policy in the face climate change. “We call energy efficiency the first fuel,” said Brian Motherway, head of energy efficiency for IEA. “Some countries have sun, some have oil, some have wind, but all countries have energy-efficiency resources.”

Investment in energy efficiency topped more than $220 billion in 2015, but that figure needs to be much larger. Last year the gains in energy efficiency, as measured by the drop in energy intensity, were three times what they were in 2013. Energy intensity is measured as the energy consumption per unit of gross domestic product.

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