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2
Bhopal and Chemical Process Safety
INTRODUCTION
No discussion of inherent safety processes (ISPs), process safety manage -
ment (PSM), and methyl isocyanate (MIC) is complete without a discussion of
the history and legacy of the Bhopal incident and the lessons learned. In what has
been described by many as the “world’s worst industrial disaster”, over 40 tons
of MIC was released at a Union Carbide India Limited (UCIL) plant in Bhopal,
India on December 2, 1984 (Dhara and Dhara, 2002; Broughton, 2005). Much
has been written on the disaster, and this report does not endeavor to repeat or
evaluate that work but rather to provide an overview of the event and a discussion
of the key lessons of process safety learned from the disaster as necessary con -
text for the report. Chapter 3 discusses the use of MIC at the Bayer CropScience
facility in Institute, West Virginia.
METHYL ISOCYANATE
The UCIL facility in Bhopal, India was a manufacturing facility for carba-
mate pesticides that had a design similar to the plant in Institute, West Virginia,
and it had been manufacturing MIC on site since 1980. As an intermediate step
to the production of these pesticides, the facility stored a large quantity of MIC
on site, although it was not actively manufacturing the material at the time of
the incident. MIC itself is a volatile, colorless liquid with a pungent odor. It is
extremely flammable, potentially explosive when mixed with air, and reacts exo-
thermically with water to form methylamine and carbon dioxide. The liquid and
vapor are toxic when inhaled, ingested, and if eyes or skin are exposed. Its vapor
31
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32 USE AND STORAGE OF METHYL ISOCYANATE (MIC) AT BAYER CROPSCIENCE
pressure is high at 54 kPa at 20oC, its boiling point is 39oC, and the vapor density
is greater than that of air, meaning that the liquid volatilizes readily and the
vapor will stay near ground level. When stored, the liquid is kept between –10°C
and 0°C in order to maintain a low vapor pressure and to prevent exothermic
self-polymerization.
THE BHOPAL DISASTER
On the night of the incident, December 2, 1984, at 11:00 p.m. local time,
while many of the Bhopal residents were asleep, it was reported that a plant
operator noticed a small MIC gas leak and increased gas pressure inside a stor-
age tank. This leak and pressure were due to water that had entered the storage
vessel. At the time, critical refrigeration for the storage system had been moved
to another area in the plant, and without refrigeration to slow the reaction of MIC
with water, the temperature and pressure rapidly rose within the storage vessel. As
the temperature rose, the MIC began to self-polymerize, adding to the heat and
pressure. The vapor was first routed to a scrubber for the vent gas that should have
neutralized at least some portion of the vapor, but this unit was not active. 1 The
vapor should then have passed to a flare tower to be destroyed, but the tower was
out of service for maintenance because of pipe corrosion. Shortly after midnight,
a safety valve opened, sending a MIC gas plume into the air (Broughton, 2005).
An emergency water curtain intended to react with the MIC in case of such a
release was not designed to manage a release of that scale and was also suffering
from corrosion, which likely reduced its efficacy.
More than 40 tons of MIC was released into the impoverished commu-
nity that surrounded the facility. As the plume traveled through the area, the
severe acute irritant effects caused residents living nearby to become disoriented
and anxious. In their attempt to escape from the chemical, residents ran out of
their homes directly into the gas cloud, which resulted in increased exposure
to the chemical. Reportedly, close to 3,800 residents were killed immediately.
Thousands more, with estimates of up to 100,000-200,000 people in and sur-
rounding that community, have experienced significant morbidity and mortality,
including being partially or totally disabled, and experiencing premature death
(Andersson et al., 1990; Beckett, 1998; Hood, 2004; Broughton, 2005; Mishra
et al., 2009).
From reports on the event, it is clear that the Bhopal facility was operating
with reduced safety standards and equipment. Specifically, the unavailability of
the refrigeration, scrubber, flare tower, and water curtain, led Broughton (2005)
to conclude that the Bhopal facility operated with “safety equipment and proce -
1 The caustic in the scrubber was warm the next morning, indicating that some of the MIC could
have actually reacted with the system despite being offline, but it was not sufficient to control the
release.
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33
BHOPAL AND CHEMICAL PROCESS SAFETY
dures well below the safety standards found at its sister plant in Institute, West
Virginia”; and “the local government, although aware of some of the safety prob -
lems”, was reluctant to enforce stronger safety and air pollution standards for fear
of losing a large employer. Multiple reports on the incident (ICFTU-ICEF, 1985;
Shrivastava, 1987; Broughton, 2005; Mannan, 2005) have identified root causes
for the disaster that are tied to human and management factors in addition to the
technical factors described above. Specific concerns include a lack of responsive-
ness to safety concerns identified during inspections, poor management of change
in response to new procedures, reduced staffing on site and high turnover among
employees, and deficiencies in equipment maintenance and operation, including
emergency equipment and procedures.
RISKS ASSOCIATED WITH MIC
The health risks of MIC exposure involve injuries to the ocular, respira-
tory, gastrointestinal, reproductive, and nervous systems (Beckett, 1998; Dhara
and Dhara, 2002; Broughton, 2005). Autopsies performed on 300 victims of the
disaster showed lesions that were severely necrotized on the upper respiratory
tract lining, the lung capillaries, alveoli, and bronchioles. In addition, the autopsies
revealed edematous and enlarged lungs, hemorrhages, bronchopneumonia, and
acute bronchiolitis (Dhara, 2000; Broughton, 2005). The acute health effects, par-
ticularly those reported and observed in residents 0 to 6 months after the Bhopal
disaster, were primarily injuries from the intensely irritating effect of MIC on the
cornea and included severe ocular burning, persistent watery eyes, pain, ulcers,
and photophobia. Lesions related to respiratory tract toxicity were seen in both the
upper and lower respiratory tracts, and included chest pain and pulmonary distress,
pneumonitis, pulmonary edema, and pneumothorax. Gastrointestinal problems
included persistent diarrhea and persistent abdominal pain (Dhara and Dhara,
2002; Broughton, 2005). Genetic health effects included increased chromosomal
abnormalities. Acute psychological health effects included neuroses, anxiety, and
adjustment reactions; and acute neurobehavioral effects reported and observed
were impaired audio and visual memory, psychomotor coordination, reasoning
and spatial coordination (Broughton, 2005).
Chronic and long-term health risks of MIC exposure, particularly 1 to
25 years after the Bhopal incident, also involved injuries to the ocular, respi -
ratory, and other organ systems, including reports of long-term injuries to the
reproductive and nervous systems. In published reviews and clinical studies of the
health effects from exposure to MIC during the early and late recovery periods
of the Bhopal incident, scientists reported persistent watering of the eyes, eyelid
infections, corneal opacities, chronic conjunctivitis, tear secretion deficiency,
and cataracts (Andersson et al., 1990; Dhara and Dhara, 2002; Broughton, 2005;
Mishra et al., 2009). Decreased lung function, restrictive and obstructive airway
disease, chest pain, dyspnea, wheezing, and allergic bronchoalveolitis were also
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34 USE AND STORAGE OF METHYL ISOCYANATE (MIC) AT BAYER CROPSCIENCE
identified as the chronic and long-term respiratory health symptoms related
to MIC exposure (Andersson et al., 1990; Beckett, 1998; Dhara and Dhara,
2002; Broughton, 2005; Mishra et al., 2009). Long-term reproductive health
risks include increased spontaneous abortions, increased perinatal and neonatal
mortality, menstrual cycle alterations, decreased placental weights, and increased
chromosomal alterations (Beckett et al., 1998, Dhara and Dhara 2002, Mishra
et al., 2009). Neurological symptoms include depression, impaired associative
learning, motor speed and precision, and muscle aches (Dhara and Dhara, 2002;
Mishra et al., 2009).
LESSONS FROM BHOPAL
Process Safety Management
Although equipment failures increased the severity of the Bhopal disaster,
these failures and the poor emergency response to the incident are indicative of
serious flaws in the management of the facility, and these flaws are considered a
root cause of the incident. These factors will not be discussed in detail here as they
have been the topic of many previous papers and reports (for example, Bowander
et al., 1985; Shrivastava, 1987), but the recognition of these organizational and
human factors concerns has contributed to the response of the chemical commu-
nity described here. The incident served as a catalyst for the chemical industry,
government, chemical engineers, professional organizations, and various stake-
holders to develop and adopt stronger and improved standards and practices for
chemical process safety. As described by one process safety expert: “A significant
impact of Bhopal was to make everybody—corporate management, government,
communities—aware of the potential magnitude of a chemical accident” (West
et al., 2004). It is in this context that the widespread use and acceptance of
the concept, “process safety,” and later, chemical process safety, was embraced
and adopted as a standard practice in the industry. The heightened awareness
resulted in new regulations for process safety; best-practices initiatives, such as
Responsible Care;2 and an increased concern about the potential to export the
risk as well as the benefits of technology to developing countries as the chemical
industry expanded around the globe. The goal of process safety is to develop a
systematic and comprehensive approach to safety that involves the proactive iden-
tification, evaluation, and mitigation or prevention of chemical releases that might
occur as a result of failures in the process, procedures, or equipment (Kletz, 1998).
In 1990, two major developments in U.S. process safety occurred: the
publication of a proposed standard from the Occupational Safety and Health
2 Responsible Care is a global program initiated by the Canadian Chemical Producers’ Associa -
tion in 1985 as a voluntary, industry-driven program to support improvements in health, safety, and
environmental practices in the chemical industry.
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BHOPAL AND CHEMICAL PROCESS SAFETY
Administration (OSHA), titled “Process Safety Management of Highly Haz-
ardous Chemicals,” and the passage by the U.S. Congress of the Clean Air Act
Amendments (CAAA) of 1990. The CAAA provided regulatory oversight of
process safety in the chemical industry to OSHA and the U.S. Environmental
Protection Agency (EPA). In particular, CAAA identified 14 minimum elements
that the OSHA Process Safety Management Standard must require of employers
(see Box 2.1). The final PSM standard was promulgated in 1992 by OSHA and
is enforced by that office in coordination with EPA. The standard emphasizes
the management of hazards through a comprehensive program that integrates
management technologies, practices, and procedures and includes 14 mandatory
elements that correlate to the CAAA requirements (see Box 2.2). Under CAAA,
EPA has responsibilities relating to the prevention of accidental release, inven -
tories of chemicals, and development of risk management plans (RMP), among
other things.
EPA, as directed by the CAAA, established its risk management program
rule requiring companies that use toxic and flammable substances to develop
and submit an RMP that must be revised and resubmitted every 5 years. A
third major provision of the CAAA was the creation and establishment of the
U.S. Chemical Safety and Hazard Investigation Board (CSB), an independent
federal agency patterned after the National Transportation and Safety Board,
to investigate major chemical accidents at fixed facilities (P.L. 101-549§ 304,
104 Stat. 2576 [1990]).
The Bhopal disaster also resulted in changes from within the chemical engi -
neering and chemical industry communities. The American Institute of Chemical
Engineers (AIChE) launched a major initiative in February 1985 to improve and
bring attention to the practices of process safety (Bollinger et al., 1996). AIChE
focused on becoming a resource for information about process safety, providing
training and education, advancing the state of the art in process safety, and pro-
moting process safety as a key industry value. An AIChE task force was formed
in March 1985, and its members proposed initial objectives to establish guidelines
for hazard evaluation procedures; guidelines for bulk storage, handling, and trans -
portation of toxic and/or reactive materials; and good plant operating procedures
and training. As a result of these objectives, the AIChE Council officially approved
the establishment of the Center for Chemical Process Safety (CCPS). The CCPS
was fully established as a separate organization from AIChE in September 1985,
with a director, part-time staff consultants in the industry, and close to 40 charter
corporate members. In 1989, CCPS outlined 12 elements of process safety man-
agement in its book Guidelines for Technical Management of Process Safety, and
these have been serving as the foundation for process safety programs, standards
and regulations throughout the chemical industry in the United States, and around
the world (Mannan, 2005). These elements are listed in Box 2.3.
In the chemical process industry, managing risks through the use and imple -
mentation of these program elements of process safety management and the
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36 USE AND STORAGE OF METHYL ISOCYANATE (MIC) AT BAYER CROPSCIENCE
BOX 2.1
CAAA Process Safety Management Standard Requirements
(P.L. 101-549§ 304, 104 Stat. 2576 [1990])
1. Develop and maintain written safety information identifying work
place chemical and process hazards, equipment used in the pro
cesses, and technology used in the processes;
2. Perform a workplace hazard assessment, including, as appro
priate, identification of potential sources of accidental releases,
identification of any previous release within the facility that had a
potential for catastrophic consequences in the workplace, estima
tion of workplace effects of a range of releases, and estimation of
the health and safety effects of such a range on employees;
3. Consult with employees and their representatives on the develop
ment and conduct of hazard assessments and the development of
chemical accident prevention plans and provide access to these
and other records required under the standard;
4. Establish a system to respond to the workplace hazard assessment
findings, which shall address prevention, mitigation, and emergency
responses;
5. Review periodically the workplace hazard assessment and response
system;
6. Develop and implement written operating procedures for the chem
ical processes, including procedures for each operating phase,
operating limitations, and safety and health considerations;
mandated requirements of OSHA and EPA generally assumes that the chemical
hazard risk already exists and is accepted. The assumption is that once the risk is
accepted, it does not go away. Unless the management system is actively moni -
toring company operations and taking proactive approaches to correct potential
problems, the opportunity for an unwanted event to occur will manifest. The “best
practice” methods for managing risks are found in the elements and components
of PSM, which are widely accepted and used worldwide.
Community Right-to-Know
Another important regulatory impact of the Bhopal disaster was the passage
of the Emergency Planning and Community Right-to-Know Act (EPCRA, also
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BHOPAL AND CHEMICAL PROCESS SAFETY
7. Provide written safety and operating information for employees and
employee training in operating procedures, by emphasizing hazards
and safe practices that must be developed and made available;
8. Ensure contractors and contract employees are provided with
appropriate information and training;
9. Train and educate employees and contractors in emergency
response procedures in a manner as comprehensive and effective
as that required by the regulation promulgated pursuant to section
126(d) of the Superfund Amendments and Reauthorization Act;
10. Establish a quality assurance program to ensure that initial
processrelated equipment, maintenance materials, and spare parts
are fabricated and installed consistent with design specifications;
11. Establish maintenance systems for critical processrelated equip
ment, including written procedures, employee training, appropriate
inspections, and testing of such equipment to ensure ongoing
mechanical integrity;
12. Conduct prestartup safety reviews of all newly installed or modi
fied equipment;
13. Establish and implement written procedures managing change to
process chemicals, technology, equipment and facilities; and
14. Investigate every incident that results in or could have resulted in a
major accident in the workplace, with any findings to be reviewed
by operating personnel and modifications made, if appropriate.
SOURCE: OSHA, 2000.
known as SARA Title III because it is Title III of the Superfund Amendments
and Reauthorization Act of 1986). This bill came about as a result of both the
Bhopal disaster in 1984 and a release of aldicarb oxime that occurred at the
Union Carbide plant in Institute, WV in 1985. The release in Institute resulted in
the hospitalization of approximately 100 individuals, and occurred shortly after
the re-start of production following a hiatus in response to the Bhopal release.
EPCRA, managed by EPA, defines the community right-to-know obligations of
government, industry, and Tribal authorities with respect to emergency response
planning and hazardous and toxic chemicals in the area. The Act has three
subtitles: Emergency Planning and Notification, Reporting Requirements, and
General Provisions. Some important elements of the Act follow:
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38 USE AND STORAGE OF METHYL ISOCYANATE (MIC) AT BAYER CROPSCIENCE
BOX 2.2
Elements of OSHA’s Process Safety Management Standard
• Process safety information. Employers must complete a compilation
of written process safety information before conducting any process haz
ard analysis required by the standard. Process safety information must
include information on the hazards of the highly hazardous chemicals
used or produced by the process, information on the technology of the
process, and information on the equipment in the process.
• Process hazard analysis. Employers must perform an initial process
hazard analysis (hazard evaluation) on all processes covered by this
standard. The process hazard analysis methodology selected must be
appropriate to the complexity of the process and must identify, evaluate,
and control the hazards involved in the process.
• Operating procedures. Employers must develop and implement writ
ten operating procedures, consistent with the process safety information,
that provide clear instructions for safely conducting activities involved
in each covered process. Activities to be covered include initial startup,
normal operations, temporary operations, emergency shutdown, emer
gency operations, normal shutdown, and startup following a turnaround,
or after an emergency shutdown.
• Employee participation. Employers must develop a written plan of
action to implement the employee participation required by PSM. Under
PSM, employers must consult with employees and their representatives
on the conduct and development of process hazard analyses and on the
development of the other elements of process management, and they
must provide to employees and their representatives access to process
hazard analyses and to all other information required to be developed by
the standard.
• Training. Each employee presently involved in operating a process or
a newly assigned process must be trained in an overview of the process
and in its operating procedures. The training must include emphasis on
the specific safety and health hazards of the process, emergency opera
tions including shutdown, and other safe work practices that apply to the
employee’s job tasks.
• Contractors. Contract employers involved in maintenance, repair,
turnaround, major renovation or specialty work, on or near covered pro
cesses are required to train their employees to safely perform their jobs.
The contract employers must document that employees received and
understood training, and assure that contract employees know about
potential process hazards and the worksite employer’s emergency ac
tion plan, assure that employees follow safety rules of the facility, and
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BHOPAL AND CHEMICAL PROCESS SAFETY
advise the worksite employer of hazards that contract work itself poses
or hazards identified by contract employees.
The facility employer must obtain and evaluate information regarding
the contract employer’s safety performance and programs. The employer
also must inform contract employers of the known potential fire, explo
sion, or toxic release hazards related to the contractor’s work and the
process; explain to contract employers the applicable provisions of
the emergency action plan; develop and implement safe work practices
to control the presence, entrance, and exit of contract employers and
contract employees in covered process areas; evaluate periodically the
performance of contract employers in fulfilling their obligations; and main
tain a contract employee injury and illness log related to the contractor’s
work in the process areas.
• Pre-startup safety review. A safety review is mandatory for new facili
ties and significantly modified work sites to confirm that the construction
and equipment of a process are in accordance with design specifications;
to ensure that adequate safety, operating, maintenance and emergency
procedures are in place; and to ensure that process operator training
has been completed. Also, for new facilities, a process hazard analysis
must be performed and recommendations resolved and implemented
before startup. Modified facilities must meet managementofchange
requirement.
• Mechanical integrity. Employers must establish and implement
written procedures to maintain the ongoing integrity of process equip
ment, including pressure vessels, piping systems, relief and vent sys
tems, emergency shutdown systems, controls, and pumps. Employees
involved in maintaining the ongoing integrity of process equipment must
be trained in an overview of that process and its hazards and trained in
the procedures applicable to the employee’s job tasks.
• Hot work. Hot work permits must be issued for hot work operations
conducted on or near a covered process.
• Management of change. Employers must establish and implement
written procedures to manage changes (except for “replacements in
kind”) to process chemicals, technology, equipment, and procedures,
and change to facilities that affect a covered process. Employees and
contract employees who operate a process and maintenance must be
trained in the change prior to startup of the process or the affected part
of the process.
• Incident investigation. PSM requires the investigation of each inci
dent that resulted in, or could reasonably have resulted in, a catastrophic
release of a highly hazardous chemical in the workplace. The investiga
tion must be initiated as promptly as possible, but not later than 48 hours
continued
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40 USE AND STORAGE OF METHYL ISOCYANATE (MIC) AT BAYER CROPSCIENCE
BOX 2.2 Continued
following the incident. The investigation must be by a team consisting of
at least one person knowledgeable in the process involved, including a
contract employee if the incident involved the work of a contractor, and
other persons with appropriate knowledge and experience to investigate
and analyze the incident thoroughly.
• Emergency planning and response. Requires employers to develop
and implement an emergency action plan. The emergency action plan
must include procedures for handling small releases.
• Compliance audits. Employers must certify that they have evalu
ated compliance with the provisions of PSM at least every three years to
verify that the procedures and practices developed under the standard
are adequate and are being followed. The compliance audit must be con
ducted by at least one person knowledgeable in the process and a report
of the findings of the audit must be developed and documented noting
deficiencies that have been corrected. The two most recent compliance
audit reports must be kept on file.
• Trade secrets. Employers must make available all information neces
sary to comply with PSM to those persons responsible for compiling the
process safety information, those developing the process hazard analy
sis, those responsible for developing the operating procedures, and those
performing incident investigations, emergency planning and response,
and compliance audits, without regard to the possible trade secret status
of such information. The employer may require from those persons to
enter into confidentiality agreements not to disclose the information.
SOURCE: Adapted from OSHA (2000).
• the creation of local and state emergency planning committees (LEPC and
SERC, respectively),
• the requirement for plant operators to notify local and state officials in the
event of a significant release of toxic materials,
• the requirement for plant operators to report inventories of all onsite chemi-
cals for which an MSDS exists to state and local officials and local fire departments,
• the requirement for plant operators to submit a Toxic Release Inventory
Form annually, and
• the protection of “trade secrets” contingent on approval by the EPA.
EPCRA, Responsible Care, and the continuing evolution of PSM systems
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BHOPAL AND CHEMICAL PROCESS SAFETY
BOX 2.3
12 Elements of Process Safety Management Defined by CCPS
1. Accountability: Objectives and Goals
2. Process Knowledge and Documentation
3. Process Safety Review Procedures for Capital Projects
4. Process Risk Management
5. Management of Change
6. Process and Equipment Integrity
7. Human Factors
8. Training and Performance
9. Incident Investigation
10. Company Standards, Codes and Regulations
11. Audits and Corrective Actions
12. Enhancement of Process Safety Knowledge
are manifestations of another, less-well-defined legacy from Bhopal: the change
in community and industry perceptions of hazardous and toxic materials and the
risks they pose to personnel onsite and the local population surrounding chemical
facilities. The effects of the MIC release in 1984 are still felt in Bhopal, India,
and by the Dow Chemical Company, which purchased the facility from Union
Carbide in 2001. Within Institute, WV, it would be naive to not recognize the
impact the Bhopal release had, and continues to have, on the area, and it is clear
that the release and its aftermath have affected local community relationships
with the current and former owners of the facility.
The nature of the relationships between a chemical company and its sur-
rounding community and onsite personnel can and do influence the range of busi -
ness decisions that a company can make. This relationship is discussed in greater
detail in Chapters 6 and 7 in the context of external factors that affect decision-
making. To emphasize the importance of these relationships, the committee
notes here that in 1985, the DuPont facility in LaPorte, TX actually began onsite
production, although not storage, of MIC. In describing the implementation of
this process, Mr. John Carberry stated that its success was due in part to the site
manager’s “long standing, strong, broad community and governmental relations”
and because the company recognized that it needed to, “[m]anage community
and governmental relations to insure a smooth acceptance of the new process”
(Carberry, 2011). To address this need, DuPont pro-actively involved the com-
munity in discussions about the change in procedures at multiple points during
the decision-making process. This engagement with the community was credited
with creating a relationship where objections could be voiced and addressed
without community protest.
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42 USE AND STORAGE OF METHYL ISOCYANATE (MIC) AT BAYER CROPSCIENCE
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