The kadogo economy is driven by the amount of income one has, the market for the 15 shilling packet are the kenyans with the a breakfast budget of Sh 30 - 50 (depending on family size). You buy the milk and add to water regardless of dilution to make tea, you then buy sugar, majani and accompaniments (ndazi, kangumu or chapo) with the difference.
And then mguu mpaka inda.
The only challenge this sh 15 packet will have to contend with is the milk hawkers. I bet the hawkers are already offering a better deal.
"The purpose of bureaucracy is to compensate for incompetence and lack of discipline." James Collins