Insulation performance in older buildings is usually poor, so retrofitting the insulation in these buildings would reduce the energy required for heating, resulting in cost and energy savings. Windows account for a significant amount of the heat loss, therefore, we have developed vacuum layer type vacuum insulation panels (VIPs) with a frame structure that is also slim and lightweight. The developed VIPs are inexpensive and easy to install, as well as being slim and translucent, so retrofitting the window insulation of existing buildings can be easily performed. In this paper, we propose a frame covering with a low emissivity film and a gas barrier envelope coating, with a focus on a reasonable design method. Firstly, a structural model was created to evaluate the safety and specifications of the frame using element mechanical analysis. Next, a finite element model (FEM) was created to predict the insulation performance. Subsequently, experimental validation was completed and the insulation performance was evaluated with the measured thermal conductivity by a guarded hot plate (GHP) apparatus. Finally, case studies were used to evaluate the insulation performance under different conditions. The optimum design included a reasonable frame-structure to hold the vacuum layer with a high insulation thermal conductivity performance of approximately 0.0049 W/(m·K).