Complex sentence: The government had budgeted only 53.87 billion yuan ($7.9 billion), less than a quarter of the total cost, at that time, including 26 billion from the central government and special accounts, 8 billion from local governments and almost 20 billion in loans.
Split into simpler sentences: The government had budgeted only 53.87 billion yuan ($7.9 billion), less than a quarter of the total cost, at that time. This included 26 billion from the central government and special accounts, 8 billion from local governments, and almost 20 billion in loans.