The fudge to get the deal done - if the only point at issue is who gets the funds from the sale (both equity and debt) - is to stipulate the funds go into a certain bank account (UK govmt might well say Bank of England) with control of its dispersal being made by a committee, (a few nominees from RA eg Buck the Chelsea chairman plus half a dozen uk nominees).
That's kicking the can down the road.
Of course RA might not be happy as despite him agreeing proceeds could go to 'victims of Ukraine war' ........ which many suggest RA thinks of as the injured/dead from russian army rather than ukrainan - as he wants the money and is concerned the funds might end as being given to Ukraine as part of the funds to rebuild it.
So documenting that 'fudge' could take a little time ..........
and RA might well be gambling UK government won't want to put a PL club into administration ......