They need an external customer for the fab so they can iterate and work out the issues. It’s anyone’s guess if someone trusts intel to manufacture on their behalf instead of sticking with an established player. They’re stuck in a chicken and egg situation - can’t reach high yields without a customer, but a customer only wants to sign up if the yields and future deliveries are guaranteed.
Intels only hope might be that someone, not naming names, coerces an established company to sign up.