Air Heat Pumps can work well when there temperature difference - heat extract from outside air heats the inside.
Unfortunately when the external air is approaching freezing point you cannot extract heat from the cold air.
Ground heat exchangers can still extract heat from the ground even when the top soil is frozen. The problem is every garden would need to be excavated & back filled - not an easy or cheap task. Then there are huge numbers of people living in flats etc with no gardens.
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