If it has been in the ground longer than about 6 years, you may have some other problem. Heavy pruning of young trees can keep them in a highly vegetative state and slow the onset of bearing. Prune young trees sparingly and only enough to train them to suitable form. Too much fertilizer keeps the tree highly vegetative as well. Fertilize only once in the early spring.
Flower buds are some of the least cold-hardy parts of the tree.
The low winter temperatures might have been enough to damage the flower buds but not the leaf buds and other vegetative parts of the plant. In this case the plant will leaf out normally but will not bloom. Sparsity of bees can reduce the crop, although some fruit should set by self pollination. Plant a tree of a different cultivar of apple within 40 feet of your tree. Crabapples also make good sources of pollen.