It does seem a bit of an unusual problem. Basically you are looking at two problems I suppose, if you are getting 21mb at the boiler.
If for instance you had a very small pipe going to the boiler, you may still get 21mb, conversely if you had a large pipe you would still get 21mb. The difference being that the large pipe can deliver a lot more gas at 21mb than a small pipe can. So the size of pipe is important. And of course making sure there is nothing blocking the inside of the pipe. I am afraid it is all to common for the likes of plaster to fall down pipes when left open while other trades work in the areas surrounding them. Also solid joints are not uncommon if to much solder has been used.
The usual pressure is 20mb coming out the meter with a permissible 1 mb drop at the appliance. I can't comment on the pipe sizing without a lot more information but just supposing its okay, then why is the boiler not firing?
I assume any air has been released out the gas line? I would have a few bob for every time I had tried to start a boiler on a new install without checking that.
Then of course you have to have a meter that will deliver the required amount of gas for all the flats. The problem is you still need 20mb in the loft with all the other gas appliances turned on. If the pipe is to small or the meter too small you will struggle to get that probably. You can get bigger meters of course but you may come on a different gas price rate if the meter is required to be overly big. It also depends on a few other things as well such as incoming mains sizes and pressures. So its not easy to give you a proper answer. Incidentally I think the meter comes under customs and excise as well as the supplier. I can assure you you do not want customs and excise after you for connecting in the gas main before they have metered it for VAT on the gas.
Try turning all the other gas appliances off in all the flats and then try the boiler. That at least may tell you that the pipe run to the boiler may be okay. What you are actually doing of course is running one boiler off the meter and the meter should be able to cope with that. If the air has not been purged, you can do it yourself by continually firing the boiler until you get a light or if it has a manual gas valve holding the button in flicking the piezo until the pilot light lights. It may take sometime as well, I must admit though the installer should have already done all this for you. Anyway if I can help just post some more and I will try to be a bit more specific.