You mean force the landlords to pay for the utilities? Doing that means the tenants then blast the heat with the windows and doors wide open: they have no incentive to be economical with their energy usage. All it takes is one bad tenant like that with $2000/month utility bills and the landlord has to declare bankruptcy.

Why not just have some kind of regulation requiring rental dwellings to meet certain energy efficiency standards? And combine this with some programs to help landlords upgrade, perhaps with low-interest loans or something.