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HAL doesn't really have any money itself. There are only two sources of funding--- taxpayers or travellers. Unless the vast majority is traveller funded the project won't happen. It is up to the CAA and the Government to confirm Davies's conclusion that the project is specified correctly and that it's worth £10 extra per traveller to HAL for ever.
Actually not necessarily HAL can raise a shed load on money via bonds and other financial vehicles over extensively long terms perhaps 50 years to redeem time.