On September 25, the Executive Yuan met in extraordinary session to invoke emergency powers, define the boundaries of the disaster area and, for a limited period, suspend various laws and regulations that limit the central government's discretionary authority over public expenditures, land appropriation, government procurement, and the use of material and equipment belonging to government agencies. The aim was to cut through red tape which could potentially obstruct disaster relief and reconstruction work.

Also on September 25, the president issued an emergency directive, ratified by the Legislative Yuan on September 28 and taking effect for six months until March 24 next year.

According to Article 2, Paragraph 3 of the Additional Articles to the ROC constitution, to avert imminent danger to the state or the people or to deal with a grave financial or economic crisis, by resolution of the Executive Yuan Council the president may issue an emergency decree. However, due to the lack of an emergency decree law at present, the emergency decree adopted by the government for post-earthquake reconstruction is vague and ambiguous, and controversy has arisen has arisen concerning the scope of its application. For example, the original plan under the emergency powers to resume operation of the Chang Sheng Power Station triggered widespread protests to the Control Yuan by representatives of environmental groups. They harbored suspicions that administrative departments would abuse the emergency decree. To evade such opposition, a halt was called to the electricity plant's reopening at the last moment.

To prevent government organizations from using the emergency decree to expand their power and to oversee government reconstruction work, with the consensus of the governing and opposition parties, the Legislative Yuan has agreed to establish the Committee for Supervising 921 Earthquake Reconstruction.

On October 4, Premier Vincent Siew announced that reconstruction work would be undertaken in three phases to be completed within five years, and identified the reconstruction areas as Taichung County, Nantou County, Taichung City, Yunlin County, Changhua County and Miaoli County.

The first phase of this reconstruction work, to be completed within six months, is to draw up a plan for renovation of urban areas. The second phase involves the publication of these plans, selection of organizations and appraisal and approval of these undertakings, while the third phase concerns the implementation and completion of these plans.

On October 5, President Lee Teng-hui held a special press conference at the Presidential Palace to explain key aspects of these plans. He pointed out that the future reconstruction of disaster areas adopts three approaches to help people rebuild their homes: urban renewal, re-zoning and protective appropriation.

Academics and entrepreneurs

Responding to Premier Siew's invitation, on October 9 the Civilian Alliance for Coordination and Monitoring of Post-Disaster Reconstruction was founded under the leadership of Lee Yuan-tseh, President of the Academia Sinica. Lee will act as its convenor and Huang Jong-tsung, Professor of Psychology at NTU, will be its executive director. Others among the 47 members include the following academics and entrepreneurs: Yeh Yih-hsiung, director of the Institute of Earth Sciences, Academia Sinica; Tsai Yi-ben, dean of the College of Earth Sciences, National Central University; Luo Chun-hsiung, director of the National Center for Research on Earthquake Engineering at the National Science Council; Hsieh Bor-shen, dean of the College of Medicine, NTU; Chen Chien-jen, dean of the College of Public Health, NTU; Hsiao Hsin-huang, research fellow at the Institute of Social Sciences, Academia Sinica; Chen Chi-nan, dean of the College of Humanities and Social Sciences, National Chiao Tung University; Mai Chao-cheng, president of the Chung-Hua Institution for Economic Research and Lin Tzu-yi, professor of law, NTU. There are six sub-groups: construction and disaster prevention; environment and agriculture; medical treatment, sanitation, social education and psychology; community culture; business management and finance; and law.

As Lee Yuan-tseh pointed out, the alliance is not a policy-making body. Its members will personally visit the disaster areas and listen to the residents' needs and suggestions. Through the various members' specialized skills and knowledge the alliance will then offer advice and suggestions, which the government will refer to as it designs reconstruction plans.

Reconstruction requires enormous finances. To raise the financial resources needed, the Ministry of Finance will issue NT$40 billion in government bonds to fund disaster relief.

The casualties and losses from this earthquake have been overwhelming. As of October 29, figures from the Ministry of the Interior show a total of 2,411 people dead, 51 still missing and 11,305 seriously injured. 26,831 buildings were completely destroyed and another 24,495 collapsed partially. The government has provided more than NT$16 billion in financial support to compensate families for the loss of loved ones and property.

To speed up housing reconstruction, the Central Bank of China has decided to allot NT$100 billion from postal savings to banks to finance low-interest loans to enable people in the disaster areas to buy new homes or repair damaged ones.

To help disaster victims gain employment the government offered aid-for-work programs. Because these offered a low monthly average wage of NT$15,000, reaction has been lukewarm.

As post-disaster reconstruction proceeds, disputes between central and county/city governments, and between county and township governments have exploded over the issues of authority and responsibility. The government administrations fight with each other for authority, finances and kudos.

Many suggest that the causes underlying these problems date from the downsizing of the provincial government. Power over local resources has become more centralized, leading to a consequent decline in local self-rule. Compounding these problems, many of the county and city governments in areas seriously affected by the earthquake are controlled by the DPP or are not under the control of any one party, whilst many of the grass-roots level administration is in the hands of the KMT. This creates an unwieldy political environment and generates envy between central and local administrations. Disaster relief and reconstruction have both developed imperfections and shortfalls. Despite attempts by the government to accelerate reconstruction work there is still widespread discontent amongst residents in the disaster areas.

Anti-corruption measures

On October 9, almost 500 people from the Alliance of Victims of the 921 Earthquake led by those from Taichung, initiated the "Overnight Stay at the Presidential Palace" demonstration. Gathering in front of the Presidential Palace, they raised three demands: non-profit reconstruction; refinancinf of existing mortgages; and subsistence allowances. After 11 p.m. that evening, the petitioning crowd moved to the Chiang Kai-shek Memorial Hall to spend the night, drawing attention to the tragic situation of having no home to live in.

In the aftermath of the disaster, the process of reconstruction work is still not entirely open, and has already developed into a struggle between the forces of good and evil to divide up financial resources.

On October 16, Justice Minister Yeh Chin-fong convened a conference of senior police officers, public prosecutors and government anti-corruption units from the six county and city administrations of central Taiwan. They decided to closely monitor the borrowing of architect licenses and the involvement of mafia in public construction projects, so as to prevent corruption among civil servants. They agreed to impose severe penalties for criminal activities relating to reconstruction projects.

The two earthquakes in quick succession have also brought to the fore the problem of the design and construction quality of school buildings. Heavy damage was inflicted on more than 600 schools, which will require some NT$36.7 billion to repair. On October 23, Premier Siew stated that school reconstruction will come within central government control to prevent the disappearance of funds by both official and unofficial routes.

In addition to there being strict prevention of mafia involvement in reconstruction work, there has also been scrutiny of the enormous financial donations.

According to the most recent statistics, there are 228 government and non-government accounts for making donations, which together have raised NT$16.1 billion.

Close watch on disaster relief funds

Distribution of donations for disaster relief has a huge role in post-disaster reconstruction work. Non-governmental organizations do not trust the government to use these funds appropriately, while the government is also skeptical of the public's ability to integrate resources. Consequently, two separate institutions have been created, the 921 Earthquake Reconstruction Foundation and the Civilian Alliance for Coordination and Monitoring of Post-Disaster Reconstruction.

The 921 Earthquake Reconstruction Foundation, instituted under the Executive Yuan's leadership and chaired by Koo Chen-fu, has already raised more than NT$8 billion. These monies will be used to help fostering orphaned children, caring for the mentally and physically impaired and for old people who are left without support, and providing resettlement, medical treatment and education for disaster victims.

As Premier Siew pointed out, although the foundation was created under the Cabinet's leadership, the government will not interfere or participate in its operation, which will be systematic and transparent.

The Civilian Alliance for Coordination and Monitoring of Post-Disaster Reconstruction is led by Lee Yuan-tseh, president of the Academia Sinica. He points out that the main point of the alliance is to increase public trust in the organizations it is monitoring, so that public donations will be used to best effect. Six private-sector groups have so far signed up to join the alliance. These are the National Union of Pharmacist Associations; the National Teachers' Association; the United Way of Taiwan; the United Daily News, the TVBS Caring for Taiwan Foundation; and the Taipei Bar Association. The alliance will also issue letters inviting others to join. Executive Director Chu Hai-yuan also suggests that the alliance can help keep an eye on the monies donated by the public to the government.

The religious community has also had a large influence following the earthquake. In particular the devotion and efforts of the Buddhist Compassion Relief Tzu Chi Foundation have received much commendation. By September 30, Tzu Chi had already collected NT$2.5 billion in donations from people of all walks of life, and had drafted NT$5.9 billion of disaster relief and reconstruction plans. In addition to disaster relief, temporary shelters, psychiatric counseling and long-term medical care, NT$4.1 billion of this expenditure will be used for the reconstruction of 25 schools.

During these all-out relief efforts by both governmental and non-governmental organizations, some people have nevertheless used the opportunity to line their own pockets.

Taichung County police have uncovered suspected cases of people posing as earthquake relief fundraisers in order to steal donations. There have also been reports from disaster areas of foreign workers and scooter gangs looting, and unoccupied houses have become the new target of gangs of thieves late at night. After the Lin Gardens in Wufeng (listed as a national treasure) collapsed, they suffered the further indignity of having many antiques stolen.

Merchants in disaster areas also drove up prices on items such as water tanks and gasoline. Tour guides also set up 'Day Tours to the Disaster Zone,' taking advantage of people's curiosity and love of excitement. Such tours to the 'sights' of collapsed houses, squashed cars and fissured roads are most distressing.

It seems therefore that in the aftermath of the earthquakes, it is not just Taiwan's homes which need rebuilding, but human hearts as well. Social scientists are most worried about the psychological scars, however, as collective trauma requires gradual healing. This, more than physical reconstruction, will require a sustained effort.

p.77

Military assistance in disaster relief and reconstruction is greatly appreciated by victims of the earthquakes. Soldiers here help to construct temporary accommodation. (photo by Hsueh Chi-kuang)

p.79

"Quiet, children, don't be afraid!" The terror, helplessness, numbness and depression of post-traumatic shock following the earthquake require the calming effects of psychological guidance and popular religion. (photo by Diago Chiu)

Quiet, children, don't be afraid!" The terror, helplessness, numbness and depression of post-traumatic shock following the earthquake require the calming effects of psychological guidance and popular religion.（photo by Diago Chiu）