I think there is one step left out of the process. If I were making this I would pound the shrimp to a paste before adding them to the rest of the ingredients. This book is quite interesting, but the translation leaves a bit to be desired. The recipe intrigues me, but I've never actually gotten around to trying it out.
Bring water to a boil and dissolve salt and pepper powder. Pour boiling water onto the tapioca flour in a large mixing bowl and stir quickly with a cooking spoon. Add in the shrimp and knead as a dough. As the water content of the shrimp is unpredictable, you may adjust it by adding more boiling water. The dough should be on the hard side. Now shape into a cylinder about 1 inch in diameter. If you do not have the proper steamer for this process, a bamboo rack or cake cooling rack will do. Lay a cheesecloth underneath and on top of the dough and plac