Hi!
While it is indeed not required to have preliminary data available for a Phase I submission, it does greatly improve your chances of securing funding. Of course, this also varies with the type of innovation you are aiming to develop, and the feasibility of generating preliminary data for your specific innovation at this stage of development. At a minimum, you will want to have extensive literature support compiled or some proof of concept data available to support the underlying scientific premise of your innovation.
Let us know if you have any other questions!
Best,
Wout