Connected to the controller with battery connected and signals switched on I get 12.5 volts, same as the battery volts. If I disconnect the controller I get >20v. Seems something is pulling down the panel volt
Solar panels are essentially current sources. They will show almost their full open circuit voltage with very, very little light, but can only produce a trivial amount of current in those circumstances, so what you’re seeing could be completely normal. To generate current, it needs sun – the more the better.
I would suggest checking again when the panel is completely illuminated with full sun. You can connect an ammeter straight across the panel (not the battery!), short circuiting it and compare the current generated to the specification.
The dull and overcast weather we’ve been having isn’t good for solar.