Building Permit and Structural Assessment Requirements for Solar Panel Installations in Australia
Going Solar in Australia? Know Your Rules First! This report dives deep into the building permits and structural checks you'll need for solar panel installation across Australia. We break down the National Construction Code (NCC) and highlight how each state and territory has its own twists and turns, from city centres to remote areas, and whether it's a home or a business. You'll learn when a qualified engineer must sign off on your setup, especially in wild weather zones or on historic buildings. We also spotlight the big players like the Clean Energy Council (CEC) and Clean Energy Regulator (CER), and why using accredited installers from Solar Accreditation Australia (SAA) is crucial. Plus, we tackle local council rules that can really vary! Whether you're an installer, a homeowner, or shaping policy, this guide helps you stay safe, compliant, and powered by the sun, the right way.
If you would rather listen to a discussion about this topic, click the play button below.
1. Introduction
The increasing adoption of solar panel installations across Australia reflects a national commitment to renewable energy and a growing recognition of the long-term economic benefits and environmental advantages of solar power. This surge in installations has occurred within a complex regulatory environment, involving multiple layers of governance from the national level down to local government authorities, alongside the influence of key industry bodies. Navigating this landscape is crucial for all stakeholders, including solar installation professionals, policy analysts, and homeowners, to ensure compliance with legal requirements, maintain safety standards, and secure eligibility for various incentives designed to promote solar energy uptake.
This report provides a comprehensive analysis of the building permit requirements for solar panel installations throughout all Australian States and Territories. A particular focus is placed on identifying any mandatory requirements for structural assessments conducted by qualified engineers to confirm the suitability of a building's structure to support the additional loads imposed by solar photovoltaic (PV) arrays. The research underpinning this report references the National Construction Code (NCC), the specific building regulations of each State and Territory, guidelines and standards issued by the Clean Energy Council (CEC), information provided by the Clean Energy Regulator (CER), and the rules and guidelines established by local government authorities across Australia. The ultimate aim is to delineate the legal requirements governing solar panel installations, with a specific emphasis on the circumstances under which a structural assessment by a qualified engineer is legally mandated.
2. Overarching National Building Regulations (NCC) for Solar Panel Installations
The National Construction Code (NCC) serves as the primary national framework for setting the minimum standards for building construction in Australia. Developed and maintained by the Australian Building Codes Board (ABCB), the NCC comprises a set of performance requirements and acceptable solutions for various aspects of building design and construction. It is important to note that while the NCC provides a national benchmark, its adoption and implementation are the responsibility of each State and Territory, which may introduce their own variations and establish specific commencement dates and transitional arrangements. The current edition, NCC 2022, has been adopted across all jurisdictions, albeit with differing effective dates and transitional provisions.
Within the NCC, Volume One pertains mainly to commercial buildings (Class 2 to 9), while Volume Two addresses residential buildings (Class 1 and 10). Both volumes contain provisions relevant to solar panel installations, particularly concerning structural integrity under Part B1 and energy efficiency under Part J. A fundamental principle embedded within the NCC is the objective of structural reliability, which aims to safeguard people from injury caused by structural failure. This objective is inherently relevant to the installation of solar panels, as these systems introduce additional loads to a building's structure.
Notably, NCC 2022 explicitly addresses the permanent load imposed by solar photovoltaic panels on Class 7b buildings, which are typically warehouses. The code mandates the consideration of an additional notional permanent roof load of not less than 0.15 kPa to support these installations. This provision acknowledges that warehouses, while often having large roof areas suitable for solar panels, might not have been originally designed to accommodate such significant permanent loads. By specifying this additional load, the NCC ensures that the structural design of these buildings takes into account the potential for solar PV installations.
Looking ahead, proposed changes to the NCC 2025 indicate a move towards mandatory on-site solar photovoltaic systems for certain building classes, including the common areas of Class 2 buildings, as well as Class 3 and Class 5 to 9 buildings. This proposed shift reflects a growing national emphasis on integrating renewable energy into the built environment to achieve net-zero emissions targets. The proposed changes aim to maximize the generation and use of solar energy on-site, with provisions that consider the building's conditioned space and the use of other energy sources like gas. This suggests a future where solar PV is not just an option but an integral part of the design for a wide range of new buildings.
3. State and Territory Specific Building Permit Requirements
Building permit requirements for solar panel installations vary significantly across the Australian States and Territories, reflecting the devolved nature of building regulations within the national framework.
3.1 New South Wales
In New South Wales, residential solar panel installations with a capacity of 10kW or less are generally classified as "exempt development" and do not require council approval, provided they meet specific criteria. These conditions include being flush or parallel with the roof, not reducing the structural integrity of the building, not being visible from the street, and not being installed on heritage-listed properties. For commercial installations, systems with a capacity between 10kW and 100kW may require a Complying Development Certificate (CDC) issued by the council or a private accredited certifier. Larger systems exceeding 100kW typically necessitate a full Development Application (DA) to the local council. Properties that are heritage-listed generally require council approval (DA) for solar panel installations, regardless of the system size.
3.2 Victoria
In Victoria, residential solar panel installations typically do not require a building permit unless the property is located within a heritage overlay area or the panels are visible from a street (excluding a lane) or a public park. Commercial installations in Victoria are more likely to require building permits, particularly for larger systems or if the installation involves structural modifications to the building. For properties listed on the Victorian Heritage Register or located within a Heritage Overlay, a planning permit from the local council or Heritage Victoria may be necessary before installing solar panels.
3.3 Queensland
Queensland has a relatively streamlined approach to residential solar panel installations. Generally, roof-mounted solar photovoltaic (PV) systems and solar hot water systems are classified as self-assessable building work and do not require a building permit. However, for larger commercial solar systems with an output greater than 5kW, it is advisable to check specific requirements with the local council. Notably, new residential constructions in Queensland have mandatory solar panel requirements as part of the state's strategy to reduce carbon emissions. Similar to other states, heritage-listed properties in Queensland may require permits for solar installations if they are visible from the street or in a noticeable location.
3.4 Western Australia
In Western Australia, the building permit requirements for residential solar panels on single houses and grouped dwellings are generally waived, except for properties located in cyclonic wind regions C or D. For multiple dwellings or commercial buildings, a building permit is required for all solar panel installations. Importantly, any solar panel installation in a cyclonic area (wind regions C and D) necessitates a building permit due to the increased risk from high winds. Commercial solar projects in Western Australia also require building permits to ensure compliance with safety and structural standards.
3.5 South Australia
South Australia has specific exemptions for smaller residential solar panel systems. Photovoltaic (PV) panels that are fitted to the pitch of the roof, do not protrude more than 100mm from the roof surface, and do not apply a load exceeding 100kg at any single point of contact with the roof can be installed by a registered electrician without requiring council approval. For larger or non-compliant residential systems, development approval from the local council may be necessary. Commercial solar installations in South Australia are likely to require development approval, with the specifics depending on the size and location of the system. Government-owned buildings in South Australia have mandatory requirements for solar panel installations as part of the state's renewable energy policy. Similar to other jurisdictions, heritage-listed properties in South Australia may require permits from the local council if the solar panels are deemed obtrusive or are visible from the street.
3.6 Tasmania
Tasmania offers exemptions from building permit requirements for residential solar panel installations that meet certain conditions. These conditions include the panels being installed by an accredited person, being parallel to the roof surface with a maximum gap of 100mm, not overhanging the roof, not being within 200mm of any roof edge, not resulting in a point load greater than 100kg, and covering an area of no more than 38 square meters. Installations that do not meet these criteria require a building permit. Commercial solar projects in Tasmania are also likely to need building permits. For properties that are heritage-listed in Tasmania, a discretionary permit application to the Tasmanian Heritage Council is required for the installation of solar panels.
3.7 Australian Capital Territory
In the Australian Capital Territory (ACT), development approval is generally not required for solar photovoltaic (PV) systems if they meet specific criteria related to setbacks from boundaries and height limits. However, building approval is mandatory for solar installations on all Building Code of Australia Class 2 to 9 buildings, which includes apartment buildings and commercial properties. For residential buildings (Class 1 and 10), while development approval may be exempt under certain conditions, building approval and structural certification by a registered engineer are required for larger or more complex systems, particularly those intended for commercial use. Similar to other states, solar panel installations on heritage-listed properties in the ACT are likely to require specific approvals.
3.8 Northern Territory
The Northern Territory has specific regulations regarding solar panel installations, particularly within declared Building Control Areas, which include Darwin, Alice Springs, Katherine, Tennant Creek, and Lake Bennett. In these areas, a building permit is required for all solar PV installations. Exemptions from the building permit requirement may be granted in non-cyclonic regions (wind regions A and B) for smaller systems installed on buildings less than 5 years old, or if the roof's structural soundness has been certified. However, in cyclonic regions (wind region C), building certification, which includes structural engineering certification by a Northern Territory registered engineer, is always mandatory for solar panel installations. Commercial solar installations in Tier 1 building control zones in the Northern Territory require both a building permit and an occupancy permit.
4. Mandatory Structural Assessment Requirements by State and Territory
The requirement for a structural assessment by a qualified engineer to confirm a building's suitability for the loads imposed by a solar PV array varies across Australian jurisdictions.
4.1 New South Wales
While New South Wales regulations do not always explicitly mandate a structural assessment for residential solar installations, it is highly likely to be required by local councils as part of the Development Application (DA) or Complying Development Certificate (CDC) process, especially for larger commercial systems (over 100kW) or complex installations. This ensures compliance with the Building Code of Australia (BCA) and local council standards. For heritage-listed buildings, a structural assessment may also be required to ensure that the installation does not cause any damage to the building's structural integrity.
4.2 Victoria
In Victoria, the Victorian Building Authority (VBA) strongly recommends obtaining an assessment of the support structure by a registered civil engineer for all rooftop solar panel installations. This assessment should consider all loading conditions, installation methods, and fixing methods. While this is framed as a strong recommendation, building surveyors may mandate it depending on the specifics of the project, particularly for commercial buildings and larger residential systems.
4.3 Queensland
In Queensland, while roof-mounted solar installations are generally self-assessable, any structural building work involved in the installation (such as modifying or reinforcing the roof framing) requires a building work contractor's license and supervision by a registered building supervisor. This implies that a structural assessment might be necessary to determine the scope of structural work needed to safely support the solar panels.
4.4 Western Australia
Western Australia mandates structural assessment in specific circumstances. For Class 1 or Class 10a buildings located in cyclonic wind regions C or D, a building permit is required for solar panel installations. This requirement inherently necessitates a structural assessment to ensure the panels can withstand the expected wind loads. Similarly, building permits are required for all solar panel installations on multiple dwellings or commercial buildings, which are likely to involve structural checks.
4.5 South Australia
South Australia requires development approval for solar panel systems exceeding 100kg in total weight or applying a load greater than 100kg at any single attachment point, as well as for installations on State heritage places. Obtaining development approval in these cases is likely to involve the submission of structural assessments to ensure the building can safely support the additional loads. Furthermore, if the installation includes structural building work, specific licensing and supervision are mandatory.
4.6 Tasmania
In Tasmania, a building permit is required for solar panel installations that do not meet the specified exemption criteria related to size, load, tilt, and proximity to roof edges. The process of obtaining a building permit typically involves demonstrating that the structure can safely support the proposed solar installation, which may require a structural assessment. For heritage-listed properties, an assessment is also necessary to ensure the installation does not negatively impact the significant fabric of the building.
4.7 Australian Capital Territory
The Australian Capital Territory mandates building approval for solar installations on all Building Code of Australia Class 2 to 9 buildings. This approval process requires a structural assessment by a licensed building surveyor. For residential buildings (Class 1 and 10), while development approval may be exempt under certain conditions, building approval and structural certification by a registered engineer are necessary for larger or more complex systems, especially for commercial applications.
4.8 Northern Territory
The Northern Territory has the most stringent requirements regarding structural assessments. In declared Building Control Areas, a building permit is required for all solar PV installations. Critically, in cyclonic regions, structural certification by a Northern Territory registered engineer is mandatory for all solar panel installations. Even in non-cyclonic regions, structural approval is required for buildings older than 5 years or if the roof's structural integrity has not been previously certified.
5. Clean Energy Council (CEC) Guidelines and Their Implications
The Clean Energy Council (CEC) plays a significant role in the Australian solar industry by setting guidelines and standards for solar panel installations. The CEC accredits solar installers and approves solar products, and this accreditation and approval are often linked to eligibility for government incentives such as Small-scale Technology Certificates (STCs) under the Renewable Energy Target scheme.
While the CEC guidelines themselves are not legally binding building regulations, compliance with them is frequently a practical necessity for installers and designers operating in the Australian market. As part of their accreditation, installers are required to comply with all local, state, and territory government installation requirements. This creates an indirect link between the CEC guidelines and the legal building permit and structural assessment requirements in each jurisdiction.
The CEC also provides specific guidance that touches upon structural considerations during solar panel installation. For instance, their guidelines emphasize the importance of ensuring the design will fit on the roof space compliantly, considering the dimensions of the panels, clamping zones, and fixing points to the roof structure. They also advise installers to ensure that the array can be installed in compliance with AS/NZS 1170.2, which relates to structural design actions, including wind loading and roof zones. Furthermore, the CEC stresses the need for a thorough site assessment before installation, which includes evaluating the structural integrity of the roof to ensure it can support the weight and wind loads of the solar panels.
6. Role of the Clean Energy Regulator (CER) in Building Regulations
The Clean Energy Regulator (CER) is the Australian Government agency responsible for administering the Renewable Energy Target (RET) scheme, which includes the Small-scale Renewable Energy Scheme (SRES) that provides incentives for rooftop solar installations. While the CER's primary function is the administration of these financial incentives through the issuance of STCs, it also plays an indirect role in ensuring compliance with building regulations.
As a condition for the eligibility of a solar installation to receive STCs, the CER requires that the installers are accredited and that the installation complies with all local, state, and territory government installation requirements. On 29 February 2024, the CER announced that Solar Accreditation Australia (SAA) would be the new Accreditation Scheme Operator. From 29 May 2024, only SAA accredited designers and installers will be eligible to interact with the CER’s Small-scale Renewable Energy Scheme. This requirement effectively links the CER's incentive program to the building regulations in each jurisdiction, including any mandatory structural assessment requirements. Installers seeking to claim STCs for their customers must therefore ensure that the solar panel installation adheres to all relevant building codes and permit conditions, which may include providing evidence of structural assessments where mandated by state, territory, or local authorities. The CER also requires installers and designers to provide written compliance statements confirming they have met all accredited design and installation requirements, as well as all local, state, and territory requirements. Providing false or misleading information in these statements can lead to penalties.
7. Local Government Authority Requirements
Local government authorities, such as city councils and regional councils, play a vital role in regulating solar panel installations within their specific jurisdictions. These authorities are often responsible for administering the development application (DA) process, particularly for larger solar systems, installations in heritage areas, or non-standard projects. In these cases, local councils can impose additional requirements beyond those stipulated by state or territory building regulations. They also play a key role in the issuance of building permits and conducting inspections to ensure that solar installations comply with local building codes and planning schemes.
Across Australia, numerous examples illustrate the specific requirements imposed by local councils. The City of Sydney in New South Wales, for instance, has developed detailed guidelines for solar panel installations within heritage conservation areas, outlining conditions under which development consent may not be required. Similarly, the City of Melbourne in Victoria requires a planning permit for solar energy systems if the panels are visible from a street or public park, or if the property is affected by a heritage overlay or included in the Victorian Heritage Register. In Queensland, the City of Brisbane offers a streamlined permitting process for small residential rooftop solar energy systems that meet certain eligibility criteria. The City of Joondalup in Western Australia has specific approval requirements for solar panels installed on multiple dwellings or commercial buildings, which differ from those for single houses. Due to its location within a Region D wind zone, the City of Karratha in Western Australia mandates a building permit for all solar panel installations. In the Northern Territory, Alice Springs Council may require structural certification for solar installations on buildings older than five years or under specific roof conditions. These examples underscore the importance of consulting with the relevant local government authority to ascertain the specific building permit and structural assessment requirements applicable to a particular solar panel installation project.
8. Comparative Analysis of Requirements Across Australia
The following table summarizes the key building permit and structural assessment requirements for solar panel installations across all Australian States and Territories:
9. Summary of Legal Requirements and When Structural Assessment is Mandatory
The legal requirements for solar panel installations in Australia are multifaceted, involving the National Construction Code, specific State and Territory building regulations, guidelines from the Clean Energy Council, information from the Clean Energy Regulator, and rules set by local government authorities. Understanding these requirements is essential for ensuring safety, legality, and access to incentives.
A structural assessment by a qualified engineer is legally required in specific circumstances that vary by jurisdiction. Generally, these circumstances include:
Northern Territory: Mandatory in cyclonic regions for all solar panel installations. Also required in declared Building Control Areas for buildings older than 5 years or without prior roof certification.
Australian Capital Territory: Required for building approval of solar installations on all Class 2 to 9 buildings (commercial and multi-unit residential). Also required for larger or complex residential systems.
Western Australia: Mandatory for residential (Class 1 and 10a) buildings located in cyclonic wind regions C or D. Likely required for building permits for commercial and multiple dwelling installations.
Tasmania: Required for solar panel installations that do not meet the specific exemption criteria outlined in the Building Regulations, which relate to size, load, tilt, and proximity to roof edges.
South Australia: Likely required as part of the development approval process for systems exceeding 100kg or installed on State heritage places.
Queensland: While not always explicitly mandated, a structural assessment may be necessary if the installation involves structural building work requiring licensed professionals and supervision.
Victoria: While the VBA recommends structural assessments for all rooftop installations, it is likely to be mandatory for commercial buildings and larger residential systems requiring building permits, as well as for heritage-listed properties.
New South Wales: Mandatory structural assessments are most likely for larger commercial systems (over 100kW) requiring a DA or CDC, and for heritage-listed buildings where there is a risk of structural impact.
It is important to note that even when a structural assessment is not explicitly mandated by regulations for all residential installations, evaluating the roof's suitability to support the additional weight and wind loads of solar panels is always a critical safety consideration. A qualified and experienced solar installer should always conduct a thorough site assessment to determine the roof's structural capacity and advise on the need for any reinforcement or further assessment.
10. Recommendations
To navigate the regulatory landscape for solar panel installations effectively, the following recommendations are provided:
For Installers:
Maintain a comprehensive understanding of the specific building regulations and permit requirements in each State and Territory where you operate, including staying informed about any updates or amendments.
Establish strong relationships with local councils to understand their specific guidelines and any additional requirements for solar installations, particularly in heritage areas or for larger systems.
Ensure that all installers within your team obtain and maintain the necessary accreditations from Solar Accreditation Australia (SAA), as this is now the requirement for eligibility for government incentives and demonstrates a commitment to industry standards.
Conduct thorough site assessments for every solar panel installation, which should include a detailed evaluation of the roof's structural suitability to support the proposed system, taking into account both dead loads (weight of panels and mounting) and live loads (wind, snow, etc.).
Provide clear and comprehensive information to clients regarding the building permit requirements applicable to their property and the potential necessity for a structural assessment by a qualified engineer, ensuring transparency throughout the installation process.
For Building Owners:
When considering solar panel installation, engage with solar installers who are accredited by Solar Accreditation Australia (SAA) to ensure they adhere to industry best practices and are knowledgeable about relevant regulations.
Proactively check with your local council to determine the specific building permit requirements for your property, as these can vary based on location, property type, and the size of the proposed solar system.
Be aware that older buildings or properties with non-standard roof structures may have specific structural considerations for solar panel installations. Do not hesitate to ask your installer about the need for a structural assessment to ensure the safety and longevity of the installation and the building itself.
For Policymakers:
Explore opportunities for greater harmonization of building regulations related to solar panel installations across the different States and Territories to reduce complexity and streamline the process for installers and consumers operating across state lines.
Ensure that clear, up-to-date, and easily accessible information regarding building permit requirements for solar installations is readily available at all levels of government, including online resources and dedicated support services.
Regularly review and update building regulations pertaining to solar panel installations to reflect advancements in solar technology, evolving best practices within the industry, and the increasing importance of renewable energy in achieving national sustainability goals. This review process should also consider the impact of climate change, such as increased frequency and intensity of extreme weather events, on the structural safety of solar installations.
