4/19
It's not a question in business studies / an MBA. The question didn't ask for a discussion on whether a retailer can make >100% profit on his selling price (you can if your costs are <0, and that can happen too*). It asked for the profit (4p) as a fraction of his cost (19p)
There's no reason why you can't have a percentage that is greater than 100%, it is simply a means of referencing the denominator back to 100. What is the current rate of inflation in Zimbabwe? Equally, you can easily make back more than your cost price again and therefore show a profit as a % of your cost that is >100. As long as the denominator is defined ("as a fraction of the COST of each bar") just do as it says.
* Cost <0. I work for a Chemical Co and one of our US plants has a waste stream that previously we had to pay to remediate and dispose. ie: at a cost to us. Now we have someone who is prepared to buy it to use as a N source for fertiliser. So our cost is effectively less than zero in that it costs nothing to make (it's a waste stream) and in fact we're a few $/tonne better off because we're not paying a waste company. Hence cost / tonne is (minus whatever that cost is)
[edit] I agree it would be an ODD way to define profit if you were being asked to do it using normal business rules, but that's not what it asked]