How do I make this ointment with urea?

As prescribed seems to me this is a peculiar composition. Mainly the large amount of glycerin seems to me badly chosen. Personally, I would provide 15% water to dissolve all the constituents, dissolving in water, in dissolved form. Mainly this urea is intended. To emulsify this aqueous solution in petroleum jelly to a W/O cream, I suggest the addition of 3% Arlacel C.