By Yasir Khan · Published 9 November 2026
Why financing, permitting, infrastructure and market readiness can determine whether an innovative project moves into operation.
Winning an Innovation Fund grant is an important milestone for a company developing an innovative low-carbon technology. It can validate a project’s potential, support its financing strategy and help attract additional investors. Yet a grant award does not guarantee that the project will be built.
Industrial decarbonisation projects often require substantial capital investment, long development schedules, new infrastructure, complex permitting and reliable commercial arrangements. Even after a project has been positively evaluated, changes in financing conditions, construction costs or market demand can threaten its viability.
The European Commission’s 2026 evaluation found that about 40% of projects reported delays before financial close. Among projects that had reached financial close, about 63% experienced delays before entry into operation. By the end of Q1 2025, 16 of 208 projects with signed grant agreements had been terminated prematurely. These figures describe different stages of implementation: a delay is not the same as a cancellation.
The central questionThe evidence raises a practical policy question: are financing structures and implementation requirements sufficiently aligned with the commercial, regulatory and infrastructure risks faced by first-of-a-kind industrial projects? The sources do not establish that grant design alone causes failure; they show that delivery is exposed to risks that can evolve after evaluation.

What is financial close, and why does it matter?
Financial close is the point in project implementation when financing and contractual arrangements are sufficiently secured for the project to move from planning into construction. For an Innovation Fund project, it is a key milestone because the funding award must be translated into a bankable, deliverable investment.
Depending on the project, reaching financial close may require committed equity and debt, lender approvals and conditions precedent, major procurement and construction arrangements, permits, offtake agreements and credible plans for any essential external infrastructure. The exact conditions vary by project, funding route and grant agreement.
The Innovation Fund framework includes a maximum four-year horizon for reaching financial close. The applicable grant agreement sets the project’s milestone and timetable. The European Court of Auditors notes that the Commission cannot extend financial close beyond the four-year limit set in legislation, even where it considers a project’s size or degree of innovation relevant to timing.
Financial close is therefore not a procedural formality. It is the point at which a project’s technology, financing plan, commercial case and implementation conditions must align sufficiently to permit construction to proceed.
1. Financing gaps: a grant does not fund the entire project
The most important factor behind delays is often the ability to secure the remaining capital. Large industrial projects can have high capital expenditure, long construction periods and uncertain early revenues. The grant may improve the project’s risk-return profile, but does not remove the need to finance the balance or cover costs that fall outside the grant’s relevant-cost calculation.
Under regular Innovation Fund calls, support can cover up to 60% of relevant costs, subject to the call methodology and conditions. Relevant costs are not necessarily the same as the project’s full capital expenditure. Developers must therefore assess the complete funding requirement, including co-financing, costs outside the eligible base and liquidity needs during development and construction.
The Commission’s evaluation identifies difficulty raising capital, substantial cost increases and changing market conditions among the recurring reasons why projects withdraw during grant agreement preparation or later struggle to proceed. Financing gaps may widen if costs rise, revenues are delayed or potential investors reassess the risk.
What project developers can do
- Prepare a complete sources-and-uses model that distinguishes the grant, equity, debt, national support and other sources, and clearly identifies any remaining gap.
- Stress-test the financial model against cost escalation, longer construction, weaker offtake prices, delayed revenues and financing costs.
- Keep the financing timetable aligned with permitting, procurement and construction milestones; avoid relying on an uncommitted source of capital to close the case.
Practical implicationA funding plan is strongest when it explains not only how the project is expected to be financed, but also how the project team will respond if one of its principal assumptions changes.
2. Offtake agreements and market demand: the commercial case must hold
Projects producing low-carbon materials, renewable hydrogen, synthetic fuels or other innovative products may depend on buyers accepting a price premium, committing to long-term purchases or meeting specific technical and sustainability requirements. In emerging markets, demand and pricing can be difficult to forecast.
The Commission and CINEA identify securing offtake as a recurring challenge. If a buyer delays or cancels an agreement, the project may lose an important source of expected revenue. That can weaken debt capacity, alter the business case and create a financing gap even when the technology remains promising.
What project developers can do
- Distinguish signed contracts from term sheets, memoranda of understanding and expressions of interest.
- Check whether demand, pricing and volume assumptions are supported by credible market evidence.
- Where feasible, diversify buyers or identify back-up offtakers and examine how lower volumes or prices would affect cash flow.
3. Permitting: a schedule risk with financial consequences
Permitting can affect the entire critical path. Industrial projects may need environmental approvals, construction permits, operating authorisations and other regulatory decisions. Requirements can vary between jurisdictions, and innovative technologies may not fit neatly into existing procedures.
CINEA’s 2025 Annual Knowledge Sharing Report presents evidence from a targeted permitting survey that received 90 replies. In that survey, 68% of projects identified permitting among their top challenges, more than 10% identified it as their primary challenge, and about half reported a concrete risk of delay linked to permits or permitting procedures.
The report also records an average of 16.1 months from the start of permit preparation to submission, and a further average of 16.4 months from submission to the granting of permits. These are survey results from the responding project coordinators, not universal statutory timelines or a forecast for every project.
What project developers can do
- Prepare a permit register identifying each approval, responsible authority, dependencies, expected duration and status.
- Identify which permits are critical to financial close, construction and operation, and build realistic float into the schedule.
- Engage early with permitting authorities and project partners; investigate whether procedures can lawfully run in parallel.
4. External infrastructure: dependencies beyond the project boundary
A decarbonisation project may rely on infrastructure that the project company does not control. Examples include grid connections, hydrogen pipelines, electricity transmission capacity, CO₂ transport and storage, water supply and shared industrial utilities. If a necessary connection or network is delayed, a technically complete facility may not be able to operate as planned.
The Commission’s evaluation and CINEA’s knowledge-sharing work both identify external infrastructure as a recurring implementation risk. This is particularly important where a project forms part of a wider industrial cluster or depends on a transport and storage network that is still being developed.
What project developers can do
- Map every critical third-party dependency and record its maturity, owner, contractual status and planned delivery date.
- Where possible, move from non-binding statements of intent to agreements with clearly defined responsibilities, milestones and escalation routes.
- Assess fallback options and schedule implications if a connection or shared facility becomes available later than expected.
5. Cost escalation and supply chains: keeping the business case viable
Higher equipment prices, construction inflation, supplier shortages and longer lead times can widen the funding gap and postpone commissioning. The risk is especially relevant for first-of-a-kind installations that depend on bespoke equipment or a limited supplier base.
CINEA’s 2025 knowledge-sharing report describes projects using financial contingency buffers, renegotiating agreements, securing additional financing, diversifying suppliers, revising delivery schedules and exploring local sourcing to manage cost and supply-chain shocks.
What project developers can do
- Use a transparent cost-estimate basis and document which elements are budget quotes, firm offers or preliminary assumptions.
- Identify long-lead items, single-source components and the procurement decisions that affect the critical path.
- Set and justify contingency levels, including the approval process for drawing on contingencies or seeking additional finance.
6. Project governance and technical validation still matter
Not every implementation problem originates outside the project. Changes in key partners, unclear responsibilities, technical redesign, additional testing or weak decision-making can also affect the schedule and financing plan. The Commission’s evaluation notes that project difficulties frequently arise from several interacting factors rather than a single cause.
A consortium may have excellent technical expertise yet lack a clear owner for procurement, permits, financial close or commercial agreements. In such cases, decisions can be delayed and one workstream can progress without the others being ready.
What project developers can do
- Assign accountable owners for finance, engineering, procurement, permitting, offtake and grant obligations.
- Establish a change-control process that assesses the effects of redesign or partner changes on costs, milestones, permits and grant conditions.
- Build testing and validation activities into the project schedule, including the evidence needed to move from one stage to the next.
The implementation gap in numbers
The Commission’s and the ECA’s findings need to be read together, but they do not measure exactly the same cohort. At the end of Q1 2025, the Commission reported 16 premature terminations among 208 projects with signed grant agreements. The ECA later examined the cohort selected for support by 30 June 2025: of 228 selected projects, 20 were withdrawn before grant agreement signature and 20 were terminated after signature. The ECA’s 40-of-228 figure is therefore a cancellation-or-withdrawal rate among initially selected projects, not a termination rate among signed grants.
The ECA also reported that, by 30 June 2025, €12.3 billion was available for projects: €11.6 billion had been assigned through grant agreements and €0.7 billion had not yet been allocated. Payments to projects amounted to €331.8 million, or 2.7% of the €12.3 billion available-for-projects amount and less than 1% of the Fund’s expected €40 billion budget.

This disbursement figure requires context. Innovation Fund payments are linked to milestones: up to 40% of the grant may be disbursed at financial close or at an agreed earlier milestone, with further amounts paid after financial close and potentially in annual instalments after entry into operation. The low cash-paid share therefore reflects the milestone model and the fact that many projects had not yet reached the relevant milestones. The ECA nevertheless concluded that project delays and terminations were contributing to slow deployment of funds.
Do not conflate the measuresGrant award, grant agreement signature, financial close, cash disbursement, entry into operation and project cancellation are distinct events. Use the relevant denominator, reporting date and definition whenever quoting a percentage.
Five practices that support delivery
The official findings do not establish a single formula for success. They do, however, support a practical set of steps for reducing avoidable delivery risk.
- Stress-test the financing model and identify the point at which a gap becomes unbridgeable.
- Secure credible offtake arrangements early and avoid relying on a single commercial assumption where practical alternatives exist.
- Start permitting work early, track the critical path and maintain active engagement with relevant authorities.
- Confirm infrastructure dependencies with named counterparties, milestones and escalation routes.
- Build delivery-ready governance that aligns engineering, procurement, finance, commercial arrangements and grant obligations.

What happens when a project is delayed?
A delay does not automatically mean that a project will be cancelled. Schedules may be amended and problems can sometimes be resolved through additional financing, revised procurement or changes to implementation plans, subject to the applicable grant agreement and approval process.
The important distinction is between a manageable deviation and a fundamental change that undermines the project’s viability or its grant conditions. The Commission’s evaluation notes that monitoring and ongoing exchanges can help identify problems early, while the ECA highlights cases where projects were cancelled after their financing could not be secured, costs changed materially or key partners departed.
Project teams should therefore monitor critical milestones throughout delivery and communicate material changes early to the relevant financiers, partners and programme authorities. Waiting until a deadline is close can reduce the options available to resolve the issue.
How Impact Funding Europe can help
For capital-intensive projects, funding strategy and implementation planning should be developed together. The technical case, financing structure, market assumptions, permitting strategy and delivery schedule need to support a coherent plan.
Impact Funding Europe supports companies preparing applications for European funding programmes. Depending on the project and agreed scope, relevant support may include funding strategy, application preparation, review of project maturity, assessment of financing assumptions and structured consideration of implementation risks.
You can also explore the Innovation Fund calls and auctions or review all EU funding opportunities.
Planning an Innovation Fund application for an industrial project? Contact Impact Funding Europe to discuss the funding route and the main technical, financial and delivery issues to address before submission.
Planning an Innovation Fund application for an industrial project?
Sources and reporting notes
Official sources
- European Commission – Evaluation of the Innovation Fund’s operation, SWD(2026) 199 final (July 2026). Open source
- European Court of Auditors – Special Report 11/2026, Innovation Fund – High potential, but slow progress and little impact on emissions reduction (published 20 March 2026). Open source
- CINEA – 2025 Annual Knowledge Sharing Report of the Innovation Fund, including the permitting survey findings. Open source
- EU legislation – Commission Delegated Regulation (EU) 2019/856, including project maturity and milestone-based grant disbursement rules; check the consolidated version applicable to the call. Open source
This article is general information. It does not replace the applicable call documentation, grant agreement, financial agreements or project-specific legal advice.


