A shortage of food would occur if demand for food is more than supply of food. This will occur if price ceiling (maximum chargable price) for food are below the equilibrium price. This makes the price ceiling binding on the equilibrium price. So the market is not able to adjust to the equilibrium price which is above the price ceiling. At a lower price there is more demand and less supply. This causes food shortage in the market.
Illustration in image for better understanding.
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