Besides being able to hide what they are doing, the policymakers and their clients have other advantages too. That seems paradoxical in a democracy, where votes are supposed to count. That same question can be asked about any number of products and commodities. The price of any single government program, such as the sugar program, is small for any individual consumer. If he could compute the additional amount he has to pay because of the program, it would probably seem too small to justify active opposition.
Most people are busy making a living and raising their families.
The opportunity costs of organizing against the sugar program would outweigh the benefits even if there was a good chance the program could be abolished. A fully informed citizen would probably shrug his shoulders with regret and a sense of futility. That is the effect of dispersed costs. While the expense to any individual is small, the total cost for all citizens is huge. That reverses the incentives for the relatively small group on the receiving end of the program.