A state commission has called for numerous changes to how Virginia and its communities respond to mass shootings, from establishing a victims’ fund to teaching people how to slow bleeding before paramedics arrive.
But the panel’s final report on a 2019 mass shooting at a Virginia Beach government building offered little information that was new or overtly critical of how the massacre was handled.
A city engineer had killed 12 people and wounded four others before police fatally shot him. The shooter, DeWayne Craddock, had legally purchased six guns in the three years before the rampage, including the two .45-caliber pistols that were used, authorities said.
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The memorial site honoring victims of a mass shooting that took place on May 31, 2019, at the Virginia Beach Municipal Center in Virginia Beach is seen on June 3, 2019. A state commission tasked with investigating the mass shooting has called for numerous changes to how Virginia and its communities respond to mass shootings.
The FBI’s Behavioral Analysis Unit found in 2021 that the shooting “was motivated by perceived workplace grievances.” However, the agency cautioned that no person or group was in a position to “see the confluence of behaviors that may have forewarned the attack.”
Before its public release this week, family members of some victims saw the commission’s final report as their last chance at accountability. They have alleged a failure by supervisors in Craddock’s office to recognize warning signs in a toxic workplace.
Virginia Beach police officers huddle near Princess Anne Road and Nimmo Parkway after a mass shooting at the city’s municipal center on May 31, 2019.
Instead, the document mostly contained recommendations to state lawmakers on how to better prevent and respond to future violence, including in government workplaces.
For example, the commission said the state should require local governments to have emergency action plans, while first responders should have access to all parts of any government building. In 2019, Virginia Beach police could not confront the gunman at one point because they lacked second-floor key cards.
The report acknowledged the commission’s limitations as an investigative body. Obstacles included no subpoena power to interview city employees as well as a lack of adequate funding.
A commission that investigated the 2007 massacre at Virginia Tech had a $460,000 budget and eight pro-bono lawyers, the report stated. The Virginia Beach commission had a $38,500 budget and no pro-bono lawyers.
Police work the scene where multiple people were killed during a shooting at the Virginia Beach Municipal Center on May 31, 2019.
The panel lacked “the resources to bring in specialists for consultations in the fields of psychology, security, human resources, or lawyers who specialize in handling mass shootings,” the report stated.
The commission initially had 21 members, which led to scheduling challenges and canceled meetings. Virginia’s Attorney General lambasted the commission in December, citing its “overall dysfunction” and the resignation of nearly half its members.
Ryant Washington, the commission’s chair, did not immediately respond to a LinkedIn message seeking comment.
David Cariens, a commission member who resigned before the final report’s release, said the panel failed.
“The legislature said investigate,” said Cariens, who left in part over the commission’s lack of investigatory powers. “What was produced is not an investigation. It is a college term paper.”
Unlike some reports that have followed other mass shootings, the Virginia Beach document does not consider the matter of gun restrictions, said James Alan Fox, a Northeastern University professor of criminology, law and public policy.
A memorial site on George Mason Drive on June 3, 2019, honors the victims killed during a mass shooting at the Virginia Beach Municipal Center on May 31, 2019.
“They didn’t take up the sort of elephant in the room, which is the adequacy of Virginia’s gun laws,” said Fox, who oversees a mass shootings database that is compiled by The Associated Press, USA Today and Northeastern University.
“States that have bans on large capacity magazines tend to have significantly fewer casualties … when there is a mass shooting,” added Fox, noting that Virginia lacks the restriction.
Much of the 16-page report focused on the need for more training and planning among police, paramedics and municipal workers.
For example, it asked the state to fund instruction for first responders on “the emotional complexity of survivors of mass shootings.”
“Families and survivors of the Virginia Beach mass shooting reported mishandling in dealing with families and survivors,” the report stated.
The commission said the state should also consider creating a mass violence fund that guarantees medical care for victims. Local governments should also boost knowledge in how to slow blood loss. The report cited the federal training program “You Are the Help Until Help Arrives.”
Morgan Nixon, right, poses with her sisters, Mackenzie, left, and Madilyn on May 22, 2020, as they display memorabilia at their home in Virginia Beach from the 2019 shooting that took the life of their mother, Kate Nixon.
Jason Nixon, whose wife, Kate, was killed in the shooting, said he hoped the commission would have held city officials in Virginia Beach accountable for what he said was a toxic workplace.
“There are some good things in there that can help other families in the future,” he said. “But the whole point of the investigation was to have accountability.”
Tiffany Russell, a Virginia Beach city spokesperson, said the city was still reviewing the report. But she said it will assess the recommendations and determine what actions can be implemented.
Russell noted the city’s human resources department implemented a centralized system in January 2021 “for tracking incidents of potential workplace violence and complaint investigations.” Such a system was not in place when the shooting occurred on May 31, 2019.
PHOTOS: Recognize anyone? 30 photos from the Times-Dispatch archives
Bellwood
This November 1947 image shows hangars used by the National Guard and Army in their military flying program at Byrd Field. That year, the city of Richmond held negotiations with the War Assets Administration for the return of the airport, which had been transformed into the Richmond Army Air Base during World War II. When the field was returned to the city, it was more than 850 acres larger than when the federal government took it over.
Virginia State Library reading room, 1977
This February 1977 image shows a reading area at the Virginia State Library. Established in 1823, the library, now known as the Library of Virginia, was housed in the state Capitol or along Capitol Square for more than 150 years – this image was taken in the library’s third location, now known as the Patrick Henry Building. In 1997, the library moved to its fourth and current location at 800 E. Broad St.
Sixth Street Market
In August 1948, the Buyer’s Resistance Group, mostly made up of housewives, had been organizing a boycott of local meat markets, such as this one at the Sixth Street Market in Richmond, to attempt to bring down prices. This image was taken during a normally busy time for the market, which instead was nearly empty. Similar demonstrations were popping up across the nation.
WWII
On Dec. 8, 1941, the day after the Japanese attack on Pearl Harbor, soldiers and sailors were called to return to their bases. This farewell scene in Richmond was a common one around the nation.
ScrapMetal
In June 1941, Richmond firefighters Charles Donnini (from left), I.A. Butler and W.C. Gilman helped collect aluminum from Richmonders. Scrap metal drives were a popular way to support national defense and war preparation efforts.
Fort Lee
In April 1941, the dance floor was full at the newly opened Service Club at Camp Lee in Prince George County. The dance kicked off a series that was to run three times per week, with a different battalion invited each night. About 500 service members and 125 women attended this first dance.
Spirit of ’76 locomotive
In August 1971, Allison Bell (left) and Pat Umlauf participated in ceremonies in Richmond unveiling the Seaboard Coast Line’s new locomotive. The Spirit of ’76 was set to travel throughout the nation to remind people of America’s upcoming bicentennial celebration.
Cigarettes
This December 1946 image shows a machine at the Philip Morris plant in Richmond that could make as many cigarettes in one minute as a person could hand-roll in one day. Such machines were a key part of the tobacco company’s growth.
Racing
In May 1958, Bill Shockley of Greenville, S.C., spun out in an eight-lap midget auto heat on the half-mile dirt track at the State Fairgrounds. About 1,800 spectators turned out for the day’s racing, which featured a 25-lap final race.
Ginter Park
In June 1950, gleeful children left Ginter Park School in Richmond as they were dismissed for the summer months — though they did need to return a few days later for their report cards.
Arena
In March 1956, a full house at the Arena in Richmond watched the State Group 1 high school basketball tournament. Admission was $1 per game for adults and 50 cents for students. Newport News High School won the tournament.
Charter Change
In October 1947, as Richmonders headed home from work, Thomas Jefferson High School students distributed literature for the Junior Chamber of Commerce promoting the change to a council-manager type of city government. In the next month’s vote, the issue generated a higher turnout than the 1944 presidential election, and the new charter was approved overwhelmingly.
Richmond Home for Boys, 1965
In September 1965, Richmond Home for Boys Assistant Director W.H. Gorman (left) chatted with two residents. In the foreground is the bell that had been used for 70 years to summon young residents. The organization was founded in 1846 as the Richmond Male Orphan Society and moved to its current site on West Broad Street in Henrico County in 1957. It is now known as the Virginia Home for Boys and Girls.
Sixth Street Market
In September 1948, Beverly Horsley, a Miller & Rhoads fashion model, chose vegetables from a lavish display at the Sixth Street Market as part of Style Marches On, a weeklong celebration of new fall fashion in the downtown Richmond retail district.
Ashe
In January 1971, Richmond native and tennis star Arthur Ashe conducted a clinic at the Valentine Museum in Richmond. The event was sponsored by the museum’s Junior Center and drew 675 youngsters and adults. Ashe, who had just returned from a trip to Africa, answered questions and demonstrated principles of the game.
JFK High
This May 1970 image shows the John F. Kennedy High School rifle team marching on East Grace Street in Richmond. Kennedy merged with Armstrong High in 2004, keeping the Armstrong name.
Grace Street
This November 1926 image shows the view down Grace Street, the “Fifth Avenue of Richmond,” near Third Street downtown. Merchants in the district were anticipating a number of large buildings, including a new Loew’s Theatre, for the thriving thoroughfare.
Civil Rights
In January 1959, protesters marched through the rain to the state Capitol in Richmond to support school integration. In the midst of the state’s Massive Resistance to the Brown v. Board of Education ruling, protests were mounting across Virginia. Richmond schools were not integrated until 1970.
Red Cross cantten class, 1942
In August 1942, members of the canteen class, sponsored by the Richmond chapter of the American Red Cross, finished their course with a demonstration of mass feeding at the Sauer Co. Among those serving were (from left) Mrs. T.V. Adamson, Mrs. Thomas Cook, Mrs. Keeling Sisson and Mrs. Irving Matthews.
Restaurants
In June 1943, the restaurant at a Peoples Drug Store in Richmond was bustling. The chain was founded in 1905 in Alexandria, and by 1943, there were six locations in the Richmond area, plus one in Petersburg. Many of them had lunch counters.
Powell
This June 1970 image shows Bob Powell at his keyboard, high in the grandstand at Parker Field in Richmond. Powell was the organist for the Richmond Braves baseball team from 1964 to 1971. He made special efforts to get to know all the players and come up with a special melody to suit them.
Agnes
In June 1972, the remnants of Hurricane Agnes brought some of the worst flooding in decades to Richmond, as seen in a watery entrance to Main Street Station downtown. The James River crested at 36.5 feet at the city locks.
Westhampton School
In September 1958, a yard full of bicycles made clear that classes were back in session at Westhampton School. The school dates to 1917; in late 2013, Bon Secours Virginia Health System announced plans to renovate the complex for use as a nursing college and medical imaging school.
Air Raid
In July 1942, Mrs. P.M. Edwards directed a group of women to a shelter during a daylight air raid test in Richmond. She was among the first women to serve as auxiliary wardens during a test.
YMCA
This June 1938 image shows the old YMCA building at Seventh and Grace streets in downtown Richmond. Built in 1908, it was the center of “Y” activities for 30 years. In 1938, it was sold for $300,000, and the YMCA later relocated to West Franklin Street, where it remains. This building was torn down after the sale, and a new one replaced it.
Westhampton
In March 1938, the Westhampton opened on Grove Avenue in Richmond. The newest addition to the Neighborhood Theatres group had one screen and a balcony (which was later converted to a second screen). Admission was 25 cents (20 cents for matinees, and 10 cents for children). Current operator Regal Entertainment Group has announced that the struggling Westhampton will close this year.
Tredegar
In June 1948, Dewey Picklesimer poured molten iron at Tredegar Iron Works in Richmond. Tredegar opened in 1837 and was a major manufacturing center for the Confederacy during the Civil War. It survived the evacuation fire of 1865 and continued as a production facility through most of the 1950s. Today the facility houses the American Civil War Center at Historic Tredegar.
Railroads
In November 1940, The Richmond News Leader published a photo essay titled “Working … on the railroad,” which featured laborers on the Chesapeake & Ohio Railway. This image shows motor cars being lifted off the tracks at the end of the day, while the cook in the kitchen car in the background signals that it’s dinnertime.
Armistice Day
In November 1952, Armistice Day ceremonies were held at the old John Marshall High School in Richmond. Today known as Veterans Day, the 1952 events marked the 34th anniversary of the end of World War I. At John Marshall, the school’s band and color guard took part in the service, and wreaths were placed on two plaques bearing names of former students who gave their lives in the two world wars.
Restaurants
In June 1943, the restaurant at a Peoples Drug Store in Richmond was bustling. The chain was founded in 1905 in Alexandria, and by 1943, there were six locations in the Richmond area, plus one in Petersburg. Many of them had lunch counters.
