You can provide low cost or free insulation (including fitting) to poor people.
This is one way to make welfare payments more effective. People are spending their money on food, and not as much on heating.
If you live in a country with denationalised utility companies you can get them to pay for this from the profits they're getting after denationalisation.
But, even when you do this you find people have different reasons for not accepting the offer.
The UK "Nudge Unit" found that the thing that drove more signups to loft insulation wasn't just free insulation, but offering a free loft clearance service too.
https://www.theguardian.com/politics/2013/may/02/nudge-unit-...
> For years, by offering financial help to insulate people's lofts, thereby reducing their energy consumption and their bills, successive governments had been trying to give money away – and failing. But in 2011, the nudge unit realised that money wasn't the problem. What held people back was all the clutter that they knew was stored up there.
> So in a trial, people were offered not subsidised insulation, but subsidised loft clearance – with unwanted items being taken to local charity shops – on the condition that they got the space insulated afterwards. The scheme cost people more, but they loved it, and uptake rates tripled. If the insulation was subsidised as well, it became a fivefold increase. Another approach was less successful, but equally revealing. When offered a still greater discount for every friend or neighbour they roped in, people took no interest. You cannot put a price, it appears, on being seen to be a loft-botherer.