Ankles seem to take FOREVER to heal. IMO it's at least partly due to limited circulation, plus you are always putting weight on the area or aggravating the injury. I think you should at least see a Dr. to find out what the exact problem is.
Can't help with your diagnosis, but FWIW I had a minor ankle break + stretched ligaments and it bothered me for years. We are not talking 2 years; more like 10 years. It's frustrating as hell, but it gradually got better. Other people I know with ankle troubles also had ridiculously long healing time.