And I know nothing about the market, but I can't imagine it's overly liquid, the fact that all farmers would receive cash for their quota, would definitely be attractive to most. It's already heavily financialized and borrowed against.
And then, you could even do something like NZ did where all the dairy farmers got together and created a coop for processing, NZ is now the largest exporter of dairy in the world! If some of the quota levy went to getting this off the ground, you'd help the farmers retain a bigger piece of the pie with vertical integration of the supply chain. And, hopefully also compete globally and become net exporters, increasing the size of the pie.
I dunno, I have no idea what the fucking solution is, but after spending a bunch of time in the weeds of this shit over the past couple days, I am like, we have created a monster, this can't be the most effective way to achieve the underlying goals of the program.