Arsenal manager Arsene Wenger fears UEFA could be "scared" to force clubs to comply with the new financial fair play regulations.
UEFA are due to implement the system for the 2013-14 season, which will give them the right to ban teams from Champions League or Europa League participation if they continue to spend more than they earn.
With the Court of Arbitration for Sport set to hear the dispute between UEFA and Swiss club FC Sion, who responded to their exclusion from the Europa League by mounting a civil action, Wenger believes such litigation could eventually soften the stance of the European governing body, saying: "I am less optimistic about that than I was a year ago about it coming in."
He added: "When it comes in, it depends on with what kind of rules. I am not sure completely that UEFA has completely worked out all the rules that will make it work.
"UEFA has been challenged by the Sion case when they excluded them and it looks like they are scared they could be challenged by the big clubs if they bring it in by force.
"I am not sure they will be capable of imposing it. I am hoping they are because I am a big fan of it, but I am less convinced than a year ago."
Chelsea believes that for the club to continue to grow, they must one day move from Stamford Bridge to a larger stadium, much like Arsenal did when leaving Highbury for the 60,000-seater Emirates Stadium in 2005.
Under the current regulations and bankrolled by billionaire owner Roman Abramovich, Wenger feels Chelsea - whom his side face in west London on Saturday - can remain at the top.
"The responsibility of people who work for a club is not only to win games but get the club to a better level and prepare for the future. The stadium is part of that," said the Arsenal boss.
"They still can [fulfil their potential] because at the moment they have a chairman who can compensate for the loss they have in the stands. As long as they have that, it will not be a problem. But the day they will have to live with their national resources, the size of the stadium can become a problem."