Spot on with the second paragraph. However,at present there is uncertainty about the ownership of RO 5. This is likely to put off developers.
ROL should issue ROOL with a license. The offer of a license that needs signing would mean that ROOL would have to take sides to accept it. They need to stay neutral. Publically issuing a license should solve any doubt problems.
(ie whoever owns RO 5 or the rights to desktop RISC OS, becomes immaterial for non comercial use.)