People living in council-owned flats in Shropshire say their homes are so cold they have to go to bed to keep warm.
The elderly residents blame the old sash windows at Severn Cliff, Bridgnorth, and have asked Shropshire Council to replace them.
Last winter they sent a petition to the council calling for improvements, but claim they are still waiting.
The council said the building was in a conservation area and it had to apply to put in double-glazed windows.
Councillor Mal Price, the Conservative-run council's cabinet member for housing and planning, said external work and damp proofing had already been done.
"We have submitted a planning application to replace the existing windows with double-glazed timber framed windows and are looking into the feasibility of replacing storage heaters with a new heating system," he said.
Resident Evelyn Jones, 84, said she had to put extra clothes on to keep warm or go to bed early.
Veronica Oliver has a first-floor flat and said there was ice on the inside of her windows even with the heating on.
Lucy Morgan, 81, has lived at Severn Cliff for four years and also goes to bed early because of the cold.
She said: "We feel we've been promised so much and they have not delivered at all."
Independent councillor Adrian Tacchi delivered a petition from the residents to the council last year but said little had been done.
"I just feel that Shropshire Council have failed in their duty of care to these elderly residents and they should not have to put up with this kind of treatment at their age. In fact, nobody should," he said.