Next time you're at a bar or a pub where they have heaters like those outside for the smokers, and it's cold, go outside and stand in the rays from one, then move away so that it isn't shining on you.
Apart from the "you need to be in the line of fire" already mentioned ... there's the fact that with high mounted ones, you end up feeling like you're sat under a grill with your head hot and your feet still cold (common in Churches and village halls ).
One of the key things for all heating is a sensitive thermostat, the worst thing being a thermostat with a lot of hysteresis. With a lot of hysteresis, the room temperature goes up and down a lot - up when the heater is on, and down when the thermostat eventually turns off again, making people feel alternatively hot and cold. A sensitive thermostat with little hysteresis will control the room temperature much better - and it's why most mechanical room thermostats have a small heater to overcome the inbuilt hysteresis.
It may be that the current heaters have poor thermostats, that's causing tenants to run them hotter than they need to avoid feeling cold, and that's putting the bills up. Something to consider.
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