ICOMOS Thailand International Conference 2011 FULL PAPER RECLAIMING A DIVIDED HERITAGE – BHOPAL AFTER UNION CARBIDE Sub-theme 1: Heritage management Author 1 Title: Name: Position: Affiliation: Contact Address: Tel: E-Mail: Cultural Heritage without Borders Sabbatsbergsvägen 6, Stockholm 11321, Sweden +46 (0) 768808871 Fax: diana.walters@chwb.org Author 2 Title: Name: Position: Affiliation: Contact Address: Tel: E-Mail: Dr Bosse Lagerkvist Senior Lecturer Department of Conservation, University of Gothenburg P.O. Box 130, 405 30 Gothenburg, Sweden +46 (0)317864714 Fax: +46 (0)317864703 bosse.lagerqvist@conservation.gu.se Dr Diana Walters ABSTRACT (max. 200 words) The decision to create a memorial on the site of the Union Carbide India Limited factory represents an opportunity to mark one of the worst industrial accidents on record. The derelict site of the former factory has acquired iconic status as a landmark in a thriving city and has come to represent many things; shame, pain, embarrassment, anger, sorrow and ongoing demands for justice to name but a few. Divisions and multiple narratives remain amongst the many and often divided stakeholders. The process of heritage management offers an opportunity for participatory and inclusive practice in the creation of a memorial / museum. This paper explores the case of Bhopal within the context of the need for a broad interdisciplinary approach that embraces industrial heritage as a relevant force for contemporary society and a contributor to the goals of active memorialization. The authors were both participants in the modern Asian Architectural Network Workshop and Symposium in Bhopal in January 2011 and are part of an international consortium of researchers supporting the architects Space Matters who in 2005 won the governmentally initiated architectural competition for developing the site. KEYWORDS (3-5 words) Industrial Heritage, memory, heritage practices, participation, stakeholders ICOMOS Thailand International Conference 2011 FULL PAPER Bhopal – the unclaimed legacy ‘Bhopal, capital of Madhya Pradesh, combines scenic beauty, historicity and modern urban planning. (..) Bhopal today presents a multi-faceted profile; the old city with its teeming marketplaces and fine old mosques and palaces, still bears the aristocratic imprint of its former rulers, among them the succession of powerful Begums who ruled Bhopal from 1819 to 1926. Equally impressive is the new city with its verdant, exquisitely laid-out parks and gardens, broad avenues and streamlined modern edifices’ (Leaflet Madhya Pradesh, no date) It is difficult to know how many visitors to Bhopal leave with an impression of the city close to the one beautifully crafted by the description in the tourism literature quoted above, but for significant numbers of people there is one event for which the city will always be associated. No amount of airbrushing or slick marketing can eradicate the memory of the events of the night in December 1984 when poisonous gas leaked from the Union Carbide India Limited (UCIL) factory killing many and blinding and maiming thousands more. The legacy of that night is not just that a new name was added to an infamous list; Chernobyl, Hiroshima, Exxon Valdez and of course now Fukushima, but that the human and environmental cost of the disaster is still being counted whilst governments and lawyers spend millions in litigation and counter litigation. Bhopal is the site of the largest industrial accident on record. How is it that an event on such a huge scale can still be unresolved over a generation later? The site and the scars of that night remain clearly visible in the tangible and intangible heritage of the city; memories and stories are testament to an ongoing human and environmental narrative that has created a whole heritage seemingly absent from the official face of modern Bhopal. In fact it is possible to visit Bhopal and not be aware of ‘the Gas Tragedy’. The physical evidence is confined to the now derelict site, situated in the northern part of the city, which has grown substantially since the establishment of the factory in 1969. As it was then, the UCIL factory site is in one of the poorest areas, home to many thousands of predominantly Muslim families in a city run by a majority Hindu administration. The area is busy and noisy, with a main road, housing, shops, small businesses, schools and all attributes of thriving community life. To the north lies the main intercity railway. The site is closed and patrolled by security guards. A stone wall, covered in graffiti and slogans, separates the former factory from the hustle and bustle of daily life. Yet despite that, the boundary fence to the rear is breached in several places and local families graze animals inside the closed area, forage food and children use the space for games of cricket and other recreational activity. The site is silent, except for the few birds and the distant hum of the constant traffic and car horns. It is an eerie space, seemingly frozen in time. Gaining access to the site is actively discouraged and involves a tedious bureaucratic procedure. Entering the site is like crossing into a parallel universe; here two worlds exist side by side and the portal is a ruined entrance to a factory that once signified a glorious revolution of opportunity and wealth for the very people over whom it now casts its shadow. ICOMOS Thailand International Conference 2011 FULL PAPER The events of December 2 1984 are well documented (see, for example, Chouhan 1994, Eckerman 2005, Dhara & Dhara 2002, Varma & Varma 2005) and various and conflicting accounts exist of what happened and why. The debate is ongoing, both in popular narratives and in the lack of an official account. Unresolved and protracted litigation between the Indian Government and Dow Chemicals (the current owners of Union Carbide) about responsibility have cost millions and to date reached no agreement. The paralysis about who was responsible and who should pay has meant that the site has never been cleaned or made safe and that contamination continues, possibly affecting the water used by thousands daily. Higher than usual rates of genetic defects in children are recorded locally as well as instances of visual impairment, a known side effect of methyl isocyanate (MIC), the main gas in the deadly cocktail released that night. This substance is the principal ingredient in the production of the pesticide Sevin that was to form the basis of the so called ‘green revolution’ in India, bringing wealth and prosperity to millions and creating jobs and security, and which overnight became its deadliest enemy. Fig. 1 Fig. 2 Illustration of the growth of population colonies surrounding the factory site, in 1969 and in 2011. Bhopal is carrying with it the multiple narratives of many voices. The questions raised by the site and the events associated with it go to the very heart of what disputed heritage means and also the potential of intervention. The site represents both a past and a future, and many of the current issues are around who can and should begin to answer these questions, and in so doing, what approach they should take. The situation today Several investigations concerning the contamination of the UCIL site have been carried out, but the presented results are often contested by different stakeholders. Three of the latest reports on the contamination situation have been presented by the National Environmental Engineering Research Institute (NEERI 2010), by the Indian Institute of Chemical Technology (IICT 2010) and by the National Geophysical Research Institute (NGRI 2010). Peer reviews regarding these reports (2010) as well as a critique of the NEERI and NGRI reports by Bhopal survivors’ organisations are also available (Gray et al 2010). Reported polluting compounds include a wide spectrum of pollutants such as naphthol, ICOMOS Thailand International Conference 2011 FULL PAPER naphthalene, Sevin, tarry residues, mercury, toxic organochlorines, volatile organochlorine compounds, chromium, copper, nickel, lead, hexachloroethane, hexachlorobutadiene, and the pesticide HCH. These pollutants are not due to casual effects of the gas leak, but are the consequence of the production period of the factory from 1969 to the end of 1984 that resulted in contamination in built structures, soil and ground water, and which pose an ongoing threat to the environment and local population. A remediation plan urgently needs to be drawn up outlining the most effective and expedient method of addressing the environmental contamination on-site to render the site safe for reuse, by using a risk-based assessment that tailors remedial action to planned end use. The most severe areas of contamination are within the site in its southern part, southeast corner and northwest part, and the exterior evaporation ponds north of the site (all due to their former function as dump zones). For these areas on-site remediation of soil through a mobile directly-heated thermal desorption process would be needed. This implies that soil does not have to be transported out from the site, but that the process in full could be managed on-site. Ecologically sustainable on-site methods of remediation could be used on large areas of the site, including phyto- and/or bioremediation and the use of a spectrum of integrated remediation approaches. Except for the most severely contaminated parts, the remaining land of the site could be treated through phytoremediation using plants to remediate, contain or render environmental contaminants harmless (Cunningham & Berti 1993, Salt et al. 1998). This minimizes physical infringements at the site, which is an advantage both for remediation as such but also decreases costs and makes the method well suited to combine with measures of landscape architecture, which can be participatory and involve local communities. Examples of participatory processes might be planting and harvesting, and in much later stages after successful remediation the possibilities for gardening and park management could be community based and / or income generating activities. Space Matters and designing of memory In 2005 the New Delhi based architectural firm Space Matters won the Indian Government’s national competition for designing a memorial for the victims. Six years later the design is still on the drawing board as work cannot begin until issues around safety and decontamination are resolved. In fact it was only in the spring of 2011 that the government decided not to simply demolish the buildings and bulldoze the site; something that would have obliterated the physical evidence of the tragedy and gone against the express wishes of many of the groups representing the victims and those seeking compensation and justice. This changing approach towards the site could represent the tension that Misztal describes as the duty to remember and the duty to forget (Misztal 2003). This basic dilemma has become heightened by the several layers of opposing interests that the intervening years have created, and a massive legacy of anger. In their proposal Space Matters (2005) works with three layers of time where each layer addresses a principal theme: the past – memory, the present – healing, and the future – deterrence. Each theme is elaborated as a node for a number of different functions possibly housed in existing buildings and structures, but also recognizing the need to add new structures to the site, as well as ICOMOS Thailand International Conference 2011 FULL PAPER integrating the site with the surrounding urban fabric. Their proposal is therefore not just a memorial plan but also an ambition to address the needs of the local community, such as vocational centres, community centres, laboratories, bazaars, greens, auditoriums, etc., thereby transforming the site to a true urban resource for the development of the city of Bhopal. Central to Space Matters’ revitalization proposal for the site is the preservation of what remains of the UCIL factory and its recognition as part of India’s industrial heritage. This means that the industrial ruins need to be treated as historic (and in this case legal) evidence of a crucial chapter in India’s modern history. The factory structures, reduced to almost half their original size, would be preserved amidst a public space that comprises facilities for education, interpretation, documentation and continuing research on related issues. This would be undertaken once the structures were decontaminated in-site and the ground made safe for public access; a process that itself could take several years. Bhopal is renowned for its parks and the possibility to develop large parts of the UCIL site to public green areas through phytoremediation measures that involves the local communities could be seen as an attractive option. It might however also be a problem; as since 1984 the growing demand from many groups in Bhopal has been that Union Carbide, later Dow chemicals themselves should decontaminate the site and its surroundings. The process of remediation will therefore be an important and sensitive part of involving and engaging different stakeholders. A successful development of the commercial and societal values of the UCIL site has the potential to increase the quality of life for the surrounding neighbourhood and for Bhopal in general. It might also add to increased property values and enhance local environmental qualities. Through a remediation and rehabilitation project, broader societal challenges of improved energy efficiency, reduced consumption of natural resources, cleaner air, water and land and an overall reduced carbon footprint could be addressed. These are ambitious and long term, but possible if the heritage process itself is managed as a force for bringing together the bitterly divided stakeholders and communities. Fig. 3. The MIC plant Fig. 4. The Sevin plant Structures considered to be preserved due to their historical and symbolic significance. ICOMOS Thailand International Conference 2011 FULL PAPER The proposal from Space Matters is built upon the complexities of a contested heritage, yet with the central belief that any memorialization process represents an opportunity for reconciliation. ‘The conflict that ‘Bhopal’ embodies presents an opportunity to generate templates and approaches with which various conflicts and challenges of the site can be negotiated. This can contribute to our greater understanding of issues relating to sites with marginalized and conflicting historical narratives. Conflicts in the contemporary past play an active role promoting a problem-orientated critique of practices in play when utilizing revitalization, re-adaptation and remembering makes critical and inclusive perspectives possible, where memory processes and social structuring processes are also given the possibility to participate in creative collaboration.’ (Bhopal 2011:2) The actions of this young company since they received the award have shown that these are not empty words. They have invested personally in a concerted effort to build international support and interest and to engage the multiple stakeholders in an often politically fraught environment and also to use the shell of the ruined site as a learning opportunity for the modern Asian Architectural Network by organizing a highly successful conference and symposium in Bhopal in January 2011. The impact of this remains to be seen, but there is now an international research group actively seeking funding to assist the process of creating a memorial. Industrial heritage and heritage processes The act of heritage making encompasses choices of social and political importance. Ashworth, Graham & Tunbridge (2007:2), amongst others, has emphasized the intrinsic politics of heritage in the way that it is used to shape the ways that people represent themselves, and thus ‘conflicts of interest are an inseparable accompaniment to heritage as practice and process’. Similarly, the question of interpretation can be problematic at sites that not only carry legacies of pain, agony and conflict, but also belong to the recent past. Such sites expose various ways of coping with such legacies (Logan & Reeves 2008). Foote (1997) categorized public responses to violence and tragedy in the United States as sanctification, designation, rectification, and obliteration and Lowenthal (2003) in a similar way; to ignore, to erase, to celebrate, to transmute or to commemorate. Misztal (2003:18) also claims that ’memories of past injustices are a critical source of empowerment.’ Faced with this theoretical minefield, how can ‘the story’ of Bhopal be written and what role could heritage processes play? The starting point is the recognition of the former UCIL plant as industrial heritage, reflecting an area of professional practice considerably developed during the last five decades. The evolving recognition of industries and their environments as heritage concerns not only the ruined remains of the 19th century as worthy of historical narratives and preservation measures, but also contemporary structures and environments of present industrialized society. Simultaneously the traditional view of cultural heritage as purely material historical testimony is challenged. Traditionally, the ‘purpose’ as voiced by the authoritative heritage discourse can simply be said to have been to preserve a supposedly objective cultural heritage for posterity. Current thinking increasingly sees cultural heritage as a living dynamic phenomenon and the preservation procedure of material structures, such as ICOMOS Thailand International Conference 2011 FULL PAPER buildings, often means change, redevelopment, redesign, reconstruction, or even construction. Heritage work in this context stems to a greater degree from more or less formulated needs within present society where the interpretation of a past is as imagined as the apprehension of a certain condition in the future (Ashworth et al. 2007). Concerning industrial heritage the perspective is broad and the results are diverse, ranging from archaeologically/scholarly based storytelling to redesigned ‘disneyficated’ history into perceived contemporary sentiments and commercial opportunities (Kennedy & Kingcome 1998). There are several possible perspectives on derelict, reused or deserted industrial sites which could be subjects for far-reaching research within a number of different disciplines. Here the standpoint is from professional heritage practice. Fig.5. Heritage practice as traditionally object-oriented sub-systems Principally, natural and cultural heritage practices are performed through a broad range of activities that comprise a number of operative measures but also the formulation of different strategies, regulations, organizational forms, occupational groups and so on which in many situations independently take decisions and measures within their own field. These practices have in several cases been developed depending on what sort of object is in focus for the activities, and in a very general sense the field could be divided according to ‘typical’ cultural heritage objects which can be understood in terms of different social systems or contexts, which are exemplified by the boxes in Figure 5. The activities within one box might have positive or negative effects in the other boxes. Industrial heritage could for example be found within the four inner boxes at least. The artefacts could be the production results of a certain industry but also the machinery and technical equipment necessary for the production process, or the random but poignant evidence of human activities and life in abandoned industries. Industrial buildings have long since been recognized by the heritage profession for their historical qualities. Built environments and cultural landscapes, created and shaped by industrial processes are gaining recognition as important aspects of industrial heritage (Palmer & Neaverson 1998, Perspectives in industrial archaeology 2000). The success of performed ICOMOS Thailand International Conference 2011 FULL PAPER activities within these boxes of practices, are dependent in a broader societal context on more general attitudes to concepts such as preservation, recycling or resource-economizing, and these attitudes are in turn the consequences of ongoing socio-cultural processes in society. To reach sustainable preservation solutions, these boxes need to be perceived as an interlinked system, where it is also necessary to add a dimension that concerns a scale shifting from an individual level to a global sphere, comprising individual remembrances as well as the consequences of industrialization for both the western world and the developing countries. The case of Bhopal is an excellent example of how these different aspects are intrinsically linked, despite the appearance of division and disagreement. The question of what should be preserved and how it should be preserved, and the answers in the shape of operative and tangible outcomes, are dependent on the principle question of why we choose to do this within a broader societal context. Some of the answers might result in challenges, small and great, for the heritage profession and long term consequences of its operational activities, such as There is a need to challenge and discuss one-sided industrial historical narrative represented by the material remains of a specific plant. Industrial heritage as simply aestheticized framings for new activities always needs to be debated since intrinsic qualities might be erased or otherwise destroyed in a redesign process. Industrial remains preserved as revered monuments of technical historical interest isolated from the surrounding society might have an alienating effect on local communities. Industrial development is characterized by three industrial revolutions where recent development results in a growing number of derelict plants, which are increasingly subjects for ‘reindustrialization’ by the tourism industry. Is this the fourth industrial revolution and what is the role for the heritage profession in this process of change? On the other hand the designation of industrial heritage as cultural heritage could be regarded as a process based on contemporary needs for historical understanding, economical development, aesthetic desires, individual meaning making and possibilities to criticize present conditions, trends and developments. In that case the production of heritage might be seen as a statement where industrial heritage has the potential strength to: Discuss inequality through historical and contemporary narratives. Explore environmental pollution through cases from the past to the present. Challenge swift trends in global economy by focusing on local conditions for, as well as needs and possibilities to redevelop an industrial site in collaboration with industry and the area of trade and business, thereby establishing possibilities for local economic development. Provide resources for individual and collective meaning making, knowledge development, and entrepreneurship through preserved and developed facilities (Bergström 2002, Hjelm 1996, The Working Life Museums). So, industrial heritage should not be seen as an isolated box in a system of different conservation/restoration objectives. Instead it is necessary to understand industrial heritage in its ICOMOS Thailand International Conference 2011 FULL PAPER broader context as an arena for continuous change and development through ongoing socio-cultural processes. In that process the historical narrative could be of increased importance not only for museological interpretations and representations, but also for a local community where the historical past could be intertwined with all sorts of societal development. Final remarks: The process of involving the stakeholders All of the above involves people, and engaging multiple stakeholders in meaningful processes is bound to be problematic. Basic stakeholder analysis around the Bhopal site reveals a long cast of actors embedded in a labyrinthine web of relationships based ranging from empathy and alliance to open hostility and seemingly intractable division. Not only that, but several years of disappointment and stalemate have created seemingly entrenched positions and understandable mistrust. Major players include the government, both national and regional, who have legal responsibilities for health and safety, and a range of groups representing victims, survivors and activists with multiple claims and varying agendas. One key stakeholder absent at every occasion is Dow Chemicals. Repeated attempts by several individuals and organizations have failed to illicit any response from the American corporation who remain immovable and seemingly indifferent over their obvious procedural failures in India. For the government the fact that a decision not to demolish the site has been reached has been widely welcomed. Intervention by the UNESCO office in New Delhi (2009), partly prompted by Space Matters, may well have assisted this shift in mind set, from viewing the site as a post industrial scar on the landscape to an iconic metaphor for a yet unwritten memory. The reorganizing of ministerial portfolios that linked health with welfare for the gas victims into the Department of Gas Relief and Rehabilitation indicates the government’s priority, and the now former minister revealed a deep sensitivity to the wider issues of the site’s legacy when he attended the mAAN symposium and contributed actively to discussions about possible approaches and outcomes. In his own words he reflected that ‘this has been 25 years of war’ and that even when the government was openly abused he felt that his primary role was to listen. That being said, there was little evidence of common ground even on the extent of the contamination or the criteria for defining who was eligible when deciding who was a direct victim of the tragedy. The details and the scientific power games have created a fog of facts and statistics which make it hard to see how consensus will ever be reached between opposing parties. Within the stakeholders some voices are louder than others. Twenty six years has given people time to organize campaigns based on deep knowledge and critical mass. A key player is the Sambhavna clinic (The Bhopal Medical Appeal, 2011) which operates as both a free health centre for survivors and an action group. Important documentation relating to the effects of industrial accidents has been kept here as well as an extensive archive of materials relating to the campaign for justice for the victims. Some efforts are now being made to digitalize this and preserve it as an invaluable resource for ongoing and future research into the response to the tragedy. Whilst the process of digitalization and preservation is welcomed by staff, themselves aware of the conservation needs of the archive, there is also a clear limit to their willingness to open up the materials for general scrutiny. ICOMOS Thailand International Conference 2011 FULL PAPER With so much unresolved the archive contains valuable information and evidence about the tragedy and the events leading up to it and information that could support the claims of many thousands of people that illness directly from contaminated water continues. The activists, many of whom have adopted the cause over a period of time, were clear that the responsibility for the tragedy remained firmly with Dow Chemicals. ‘They must pay’, one woman stated. ‘If the government clean the site, then they have done their (Dow’s) dirty work, they have got away with it.’ Equal clarity existed around the site itself. ‘The site should be protected as a symbol for the whole world of what is wrong’, she said, ‘A museum there would show how everyday lives of the people here are still affected, and it should show how life was before the disaster.’ Another example of impromptu memory making is that of the Museum by Survivors (Remember Bhopal, 2011) run by the Chingari Trust (2011). This organization, run by women in a street very close to the Union Carbide site, was awarded the Goldman Environmental Award in 2004 (sometimes called the Alternative Nobel Prize for the Environment). As with the previous example, it exists primarily to alleviate suffering of the victims, but it also has a small museum comprising objects from people affected by the tragedy. The collection is kept in a small room with no conservation or proper storage. The objects are everyday and commonplace; a pair of glasses, a wedding photograph, some clothing, a letter, but their significance is overwhelming. The fragility of human life in the face of global development is somehow captured in the delicacy of these small manifestations of people’s lives, scarred forever by the events of one terrible night. Given a formal setting, their museological significance could reach millions of people and communicate intensely personal human experience that Bhopal is. Fig. 6 Some of the belongings of victims collected by their families in the museum However, the conundrum of Bhopal goes beyond the power of the objects, be they a pair of reading glasses or a derelict industrial building, and into the central question of whose memories are ICOMOS Thailand International Conference 2011 FULL PAPER to be preserved and how are they to be retold and for what purpose? The need to remember begs the question about remembering what. If the spectrum that places memorialization at one end and living heritage / eco museology at the other, then where would be the appropriate place to site the Bhopal memorial? One thing is clear; consensus will not be reached. There are many in the city who were not affected at all and who simply want the whole issue to go away. To them it is utterly irrelevant. But, if the development of the site created an interest in Bhopal as a new destination on the growing ‘dark heritage’ trail, then could that attitude change? If economic benefit and social stability were to come from income generation and tourism, then arguably yes. To others, however, this would simply be another layer of global exploitation from their suffering. Heritage as a process offers the opportunity to bear witness. In many ways, it could be part of peace and reconciliation, a paradigm that could be applied to conservation and museology questions in Bhopal. Of course, the easiest option would be to create a memorial and possibly by doing so some good may come to those who suffered, but here is an opportunity to build in reconciliation, or at the very least, the space for encounter. To do this requires the development of a detailed management plan, involving multiple stakeholders and with several outcomes. The site could become a focal point for regeneration, for discussion, for bearing witness and for contemporary questions around industrialization in one of the fastest growing countries in the world. It is possible that the site could even become some kind of place for healing, where hidden histories and buried memories are worked with as starting points for community projects and micro industries. The complexities of these vast events are often reduced to bumper sticker slogans. ‘Never Again’ was a constant refrain during the days of the mAAN workshop. It’s too simple, and a more meaningful metaphor can be drawn from the landscape at Bhopal. The site, the buildings, the tangible and intangible heritage speaks of a legacy that has a relevance far greater than that of a city in India; it is a universal, global message that needs to be built here. Bhopal, twenty six years too late, is in fact a timely reminder that in the face of rapid industrialization and technological revolutions, the basic human needs of safety, shelter, water and food still guides our daily life and from all of these comes our need to remember. 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Bulletin of Science, Technology and Society, vol. 25, no. 1, pp 37-45 List of Figures Fig. 1-2 Produced during Bhopal2011 Requiem & Revitalization, Student Workshop by Unit 1 (Anupriya Goswami [India], Pawas Bisht [India], Laura Laudere [Latvia], James Ro [USA], Andreas Nilsson [Sweden], Sanjeev Kumar [India], Angita Das [India]) Fig 3-4 Photo: Bosse Lagerqvist, January 2011 Fig. 5 After: van Gigch, John P., Jan Rosvall and Bosse Lagerqvist (1996) “Setting a Strategic Framework for Conservation Standards” In: Standards for Preservation and Rehabilitation. Stephen J. Kelley, editor. West Conshohocken, USA: ASTM. PCN 04-012580-10. Fig. 6 Photo: Diana Walters, January 2011