Without a co-pay structure like this that ties the utility costs in part to the entity responsible for structural investments, rental homes cannot help but remain horribly inefficient. Start a consumer advocacy group. I'll work for ya. Not all landlords operate at an absurdly high profit margin. Small landlords, especially ones who've bought property recently, are paying off mortgages that are as absurdly high as rents.
Landlords already get a tax break for renovations.
Change requires crisis, most frequently - in times of necessity, minds tend to open.