This isn't a government failure. The government is correctly pricing the true cost of industrial land use: the loss of farmland and natural space.
Rooftop solar is cost-effective because it cleverly avoids that cost by using land that's already developed. It's not winning because of bureaucracy, but because it's using a limited resource in a smarter way.
So the argument against my claim that the government and market has failed if balcony solar is cost effective, is that the government is the problem?