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Why wouldn't EU energy consumers have done that already if they can save that much money?

A huge amount of property is not owned by the energy consumer and the owners are not incentivised (or forced) to do it - so they don't. It's not a cash problem - the owners are earning exceptional returns at this time - it's a problem of poor regulation.

One fix would be to have the owner pay for heating/cooling costs of the structure. My apartment pays for the heating so as a result the place is very well insulated even though it is older.

I'll note that it's not always worth it to further insulate or replace functional though inefficient equipment. For example my apartment has an electric bill of about $50 a month, half of that is a fixed infrastructure cost. Even if I could bring my electric use to zero, it could at best save $25 a month. Replacing my AC with a more modern one could probably at best save $5 a month of that, taking many years to pay off even if you pay nothing for labor.

I suspect in many cases the energy consumer is not the building maintainer.

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