Splitting tenders into smaller bids leads to supply fragmentation, which entails processing more bids, assessing and monitoring the quality of several different lots and organizing transportation. There are also the costs of providing training programmes to cooperatives and the higher default rates among farmer groups, as they are more vulnerable to risks. However, these costs can be reduced with appropriate investments in capacity building targeted at producer organizations. Bureaucratic systems and burdensome requirements make it difficult for small producers to participate without effective targeting.