Explain the term 'market' and calculate government costs related to price controls and elasticity of demand for bread, using data from Table 2.

At a price of 200 FCFA:  
Quantity supplied ($Q_S$) = 200 packets  
Quantity demanded ($Q_D$) = 450 packets

Since $Q_D$ (450 packets) is greater than $Q_S$ (200 packets), there is a shortage of $450 - 200 = 250$ packets. There is no excess in the market at this price.

As there is no excess to buy, the cost to the government is 0 FCFA.  
The cost to the government is $\boxed{\text{0 FCFA}}$.

Initial Price ($P_1$) = 250 FCFA  
Final Price ($P_2$) = 200 FCFA  
Initial Quantity Demanded ($Q_1$) = 300 packets (at 250 FCFA)  
Final Quantity Demanded ($Q_2$) = 450 packets (at 200 FCFA)

$$
\Delta Q = Q_2 - Q_1 = 450 - 300 = 150
$$
$$
\text{Average } Q = \frac{Q_1 + Q_2}{2} = \frac{300 + 450}{2} = \frac{750}{2} = 375
$$
$$
\% \Delta Q_D = \frac{\Delta Q}{\text{Average } Q} = \frac{150}{375} = 0.4
$$

$$
\Delta P = P_2 - P_1 = 200 - 250 = -50
$$
$$
\text{Average } P = \frac{P_1 + P_2}{2} = \frac{250 + 200}{2} = \frac{450}{2} = 225
$$
$$
\% \Delta P = \frac{\Delta P}{\text{Average } P} = \frac{-50}{225} \approx -0.2222
$$

$$
PED = \frac{\% \Delta Q_D}{\% \Delta P} = \frac{0.4}{-0.2222} \approx -1.80
$$

The absolute value of the price elasticity of demand is $|-1.80| = 1.80$.  
Since $|PED| > 1$, the demand is **elastic**.

The price elasticity of demand is approximately $\boxed{-1.80}$.  
The demand is **elastic**.