According to the will of the EU Commission, EU countries should urgently accelerate the expansion of solar energy.
In a draft available to the German Press Agency, the authority presents a European solar roof initiative to equip existing and new buildings with photovoltaic systems.
"Solar power and heat are key to reducing the EU's dependence on Russian gas," it said.
Criticism has come from the EU Parliament because the strategy is not mandatory.
The design is subject to change.
According to the paper, buildings that consume a lot of energy are to be equipped with solar roofs on a large scale from next year.
Renovated roofs should receive photovoltaic systems in combination with energy storage.
All public buildings are to have solar roofs by 2025.
A solar roof requirement for new buildings is also proposed.
In addition, citizens are to receive specific information about the installation of solar cells and heat pumps for their own homes, and special financing models are intended to ensure that poorer households also have access to the technologies.
The draft is part of a package that the EU Commission plans to propose to the EU countries and the European Parliament in mid-May in order to become independent of Russian energy as quickly as possible.
This also includes a law to speed up approval procedures for solar systems.
In the run-up, it was criticized that the plan is not binding.
"With nice words and intentions, we are not building or installing solar cells on Europe's roofs," said MEP Michael Bloss (Greens).
He called for a legislative proposal with a legally anchored solar obligation and European solar financing.
Countries such as Austria, Belgium, Luxembourg and Spain had suggested something similar in a letter.
A solar roof requirement is also being debated in Germany.