For each council investment, the council will typically set a maximum amount it is planning to raise as part of that particular loan. However the council does not need to reach the investment target and the investment will still go ahead even if the full target isn't reached.
For example, a council may set out to raise a maximum of £1,000,000. If by the close date only £800,000 has been invested, the loan will still proceed. The council has many other sources of funding that they use alongside the money raised on Abundance to finance their capital programme.