>In the USA, given that the vast majority of apartments don't have to pay energy bills, this means they don't have an economic incentive to upgrade appliances, provide adequate insulation during construction, or maintain air seals.

I don't understand this argument.

Someone is paying the bill (the owner), and they are also paying for maintaining air seals and upgrading appliances (you don't bring your own). Why don't you think there are economic incentives?

In fact, I'd argue there are greater incentives to do this for the building owner: greater scale and more efficiencies.