In all the time that we have checked properties in this site we have never had any issues with the connection of utility connections
In the past RODA have delayed the completions when the Certficate has not been available and I would be very surprised if it had not been issued on Phase 1 & 2 as all utility connections are permanent from the suppliers
I would always advise not to complete without the Certficate because it is not possible to get utility connections and what RODA did, because they could not get gas initally on phase 2 was install temporary electric water heaters but it would mean that you have no central heating.
Legally you are not required to complete in the Certifcate of Habitation is available
I was the author for the article highlighted and If you want a guide to the complete RODA process, including advice on this issue please mail me at rodaguide@inspectahomespain.com