Norfolk Bets Big on the Waterfront: $750 Million Casino Project Breaks Ground Next to Harbor Park

By HRCNN Staff Writer
July 26, 2025 – Norfolk, VA

In a long-anticipated step toward revitalizing its urban waterfront, the City of Norfolk has broken ground on a $750 million casino and resort development that will transform a surface parking lot near Harbor Park into a year-round entertainment anchor. Developed through a partnership between the Pamunkey Indian Tribe and Boyd Gaming Corporation, the project is expected to deliver significant economic returns, enhanced transit connectivity, and a new identity for the city’s east downtown corridor.

“This isn’t just a gaming destination,” said City Manager Patrick Roberts. “It’s a regional anchor—connecting transit, tourism, and long-term development strategy.”

The six-acre site, previously known as Harbor Park Lot D, is being reimagined as a full-service resort complex. Plans call for a 200-room hotel, more than 1,500 slot machines, 50 table games, eight restaurants and bars, and a 45,000-square-foot amenities deck. A 1,300-space structured parking garage will support both on-site patrons and broader downtown event traffic. The developers anticipate opening a temporary casino facility by the end of 2025, a requirement tied to the voter-approved 2020 casino referendum. The full build-out of the permanent resort is expected to be completed by late 2027, with construction currently managed by S.B. Ballard Construction and Yates Construction—the same team behind Rivers Casino Portsmouth.

On July 25, 2025, a team from the Hampton Roads Construction News Network (HRCNN) visited the active construction site. At present, contractors remain in the early stages of infrastructure development, with work focused on horizontal utilities, underground connections, and initial site grading. Trenches have been opened for electrical, sanitary, storm, and water service lines, and equipment is staged along the site perimeter for ongoing material deliveries and subgrade preparation.

Norfolk’s entry into Virginia’s gaming sector follows closely on the heels of Portsmouth’s 2023 debut of Rivers Casino, which generated more than $15 million in gambling tax revenue in its first year. The proximity of the two properties—just across the Elizabeth River—has prompted questions about regional market saturation. Yet Boyd Gaming executives remain confident in the project’s positioning.

“We see Norfolk not only as viable but as visionary,” said Boyd Senior Vice President Marianne Johnson. “This project balances premium gaming with waterfront recreation and connectivity to rail, ferry, and regional highways.”

Indeed, the site’s adjacency to the Tide light rail system, Norfolk’s ferry terminal, Amtrak station, and the I-264 corridor gives the resort a multimodal advantage unique among East Coast gaming properties. The project is also envisioned as a key economic driver for the broader St. Paul’s redevelopment district.

The casino’s journey to groundbreaking was far from straightforward. Initial concepts unveiled in 2021 proposed a sprawling 13-acre footprint. However, shoreline regulations, FEMA floodplain designations, and coordination with multiple regulatory agencies—including the U.S. Army Corps of Engineers, Virginia Marine Resources Commission, Norfolk Wetlands Board, and Department of Environmental Quality—led to a significant reduction in the developable area. Ultimately, the buildable site was scaled down to six acres, with adjustments made to align with Norfolk’s $2.6 billion federal floodwall project.

Planning staff and design consultants from VHB and HKS worked extensively to ensure the project met city goals for resiliency and public access. The Elizabeth River Trail will be extended along the waterfront, buffered by lighting, landscaping, and visual corridors to preserve the riverfront experience. Despite a 6–1 vote of support from Norfolk’s Architectural Review Board, some design elements—including building height, wayfinding signage, and indoor smoking areas—remain under scrutiny.

Opposition to the project has not been limited to regulatory boards. Norfolk Councilmember Courtney Doyle cast the sole vote against the revised site plan, citing concerns over public health impacts, design scale, and the project’s symbolic weight on the city’s shoreline.

“There were real questions about what kind of development belongs on our waterfront,” Doyle said during the September 2024 hearing. “This is not just a building. It’s a message.”

Still, city officials point to substantial fiscal and employment gains as justification for the project’s aggressive timetable. According to economic impact projections, the resort could generate upwards of $30 million in annual revenue for Norfolk through a combination of gaming taxes, lease payments, and indirect activity. During construction, the project is expected to support more than 2,800 jobs, with roughly 850 permanent positions once fully operational. Annual wages across all sectors tied to the resort are projected to exceed $58 million.

Jared Chalk, Norfolk’s Director of Economic Development, noted that the casino is not being positioned as a standalone amenity, but as a keystone in a broader strategy to modernize the city’s hospitality and tourism infrastructure. “The fiscal impact is meaningful, yes,” Chalk said, “but just as important is the catalytic effect this project has on surrounding redevelopment and employment mobility.”

Still, for many Norfolk residents, questions remain. Some community leaders have expressed concern about the risk of over-commercialization, traffic spillover into adjacent neighborhoods, and the equity implications of locating a high-end casino near communities still recovering from generational disinvestment. Others are cautiously optimistic, hopeful that new job opportunities and public-private reinvestment will reach those most in need.

“The resort could become a symbol of either vision or division,” said civic activist Andrea Lemieux. “The outcome will depend on who it serves—and who gets left behind.”

For now, cranes continue to rise above the Elizabeth River, reshaping a familiar skyline with steel, concrete, and high expectations. Whether Norfolk’s bet on the waterfront pays off—or busts—remains one of the region’s most closely watched civic stories.

About HRCNN
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Built Safe, Built VA: Building a Stronger Commonwealth from the Ground Up

By Eric S. Cavallo – Licensed Commercial Building Contractor | Member, International Code Council (ICC) | Board Member, Virginia Beach Board of Zoning Appeals | Advisory Committee Member, Virginia DHCD – SB195 Reform | Founder & CEO, Earthly Infrastructure®

Safety has long been one of the defining values of the construction industry. But as our cities grow more complex, our climate more unpredictable, and our housing needs more urgent, the meaning of “building safely” must evolve. Today, it’s no longer enough to focus exclusively on jobsite hazards or regulatory compliance within the fence line. The safety of Virginia’s built environment starts upstream—with land use, planning decisions, infrastructure investment, and the policies that govern them all.

Built Safe, Built VA began as a call to strengthen safety culture across Virginia’s construction sites. From OSHA alignment and VOSH enforcement to job hazard analyses and public interface protocols, the original message was clear: protecting lives and reputations on the job is foundational to ethical construction. But the time has come to expand the campaign’s reach. Safety must also guide how we zone our communities, manage our stormwater, approve our housing stock, and license those who shape our physical environment.

One of the earliest and most overlooked points of impact is zoning. Setbacks, overlays, height restrictions, and access requirements may seem bureaucratic—but they often determine whether emergency vehicles can reach a structure, whether pedestrians and cyclists are safely accommodated, and whether public infrastructure can support private development. As a member of the Virginia Beach Board of Zoning Appeals, I’ve seen firsthand how zoning decisions—good and bad—leave lasting safety consequences. Built Safe means starting at the planning table.

Stormwater management is another critical piece of the safety puzzle. In a coastal region like Hampton Roads, a poorly planned or under-enforced BMP isn’t just an engineering flaw—it’s a public hazard. In next month’s HRCNN feature, Councilman Michael Berlucchi (District 3) offers a civic perspective on how local government can lead in protecting our watersheds and preparing for climate impacts. Erosion, flooding, and sediment runoff don’t stop at property lines. Neither should our commitment to prevention.

Likewise, structural safety must be defended through policy—particularly as we seek to modernize housing. In my role with the Virginia DHCD advisory committee on SB195, I’ve been part of the conversation around single-stair reform in R-2 occupancy structures. This is a question of both affordability and egress. Of innovation and life safety. As we welcome more density in our cities, we must be honest about what safe vertical development looks like—and who bears responsibility when it falls short.

That responsibility should extend to all players in the development chain. In Virginia, contractors must be licensed, tested, insured, and held accountable. But developers—who often initiate, coordinate, and finance the projects that shape our communities—are not subject to the same baseline requirements. This is a regulatory gap that I believe must close. Built Safe, Built VA calls for equal standards across the building lifecycle. If you have the authority to shape a neighborhood, you should carry the license to match.

Public safety also hinges on how construction engages the community during the build. Traffic control plans, signage, fencing, and hazard communication are not superficial details—they are the public’s experience of the construction profession. Whether we're working in a dense urban district or a coastal village, we must treat every project as a public-facing commitment to professionalism. Safety doesn’t end with a passed inspection. It extends to every resident who walks, drives, or lives near our work.

In the months ahead, Built Safe, Built VA will continue spotlighting the people and policies that make Virginia stronger—from jobsite practices and planning board decisions to stormwater initiatives and housing reforms. Through Earthly Infrastructure® and the Hampton Roads Construction News Network, we’re proud to carry this conversation forward—not as critics, but as partners in building a better Commonwealth.

Let’s keep pushing the standard. Because when we build safe, we build trust. We build value. And most importantly, we build Virginia.

Zoned for Concern: Chesapeake Rejects Data Center Proposal in Landmark Vote

By Earthly Infrastructure® HRCNN Staff Writer

As Virginia communities evaluate how to accommodate next-generation infrastructure, the City of Chesapeake has emerged as a case study in zoning governance, public participation, and responsible land use planning. In June 2025, a rezoning application to allow the development of a 350,000-square-foot data center was unanimously denied by City Council following extensive community input and procedural review. The decision reflects Chesapeake’s commitment to evaluating land use proposals through a lens of compatibility, transparency, and long-term community impact.

The proposed project, submitted by Emerald Lake Estates I Inc. and developer Doug Fuller, sought to rezone a 22.6-acre site at the corner of Centerville Turnpike and Etheridge Manor Boulevard from agricultural (A-1) to light industrial (M-1). The proposed use included a two-story data center facility supported by fiber infrastructure from the Southside Network Authority. While the project’s economic potential was acknowledged, residents and stakeholders raised concerns related to noise, water and energy demand, proximity to residential neighborhoods, and lack of clear performance standards or environmental mitigation plans.

In response, the Planning Commission convened a public hearing in May 2025 that drew over 50 speakers, 650 written comments, and a petition signed by more than 450 residents. After extensive deliberation, the Commission voted 6–1 to recommend denial of the application. Chesapeake’s City Council reviewed the matter on June 17, 2025, where it voted 7–0 to reject the rezoning. Two members — Mayor Rick West and Councilmember Daniel Whitaker — were absent or recused due to scheduling and conflict of interest, respectively. The remaining Councilmembers unanimously supported the Planning Commission’s recommendation, citing concerns over location suitability, potential environmental impact, and inadequate buffering between the proposed industrial facility and nearby homes.

Councilmember Amanda Newins and others noted the importance of identifying appropriate zones for data center development while preserving the integrity of existing neighborhoods. Several members emphasized that the decision did not constitute opposition to data infrastructure broadly but reflected a commitment to thoughtful site planning and respect for public input.

This decision aligns with a broader pattern across Virginia and the nation. Communities in Loudoun County, Pittsylvania County, and York County have faced similar challenges in balancing the economic appeal of data centers with land use, environmental, and quality-of-life considerations. Chesapeake’s handling of this application illustrates the critical role that zoning, environmental due diligence, and public participation play in maintaining community trust while enabling strategic development.

Following the denial, the applicant requested that the matter be continued to allow time for further analysis and public outreach; however, Council proceeded with its vote as scheduled. The developer has since indicated that revised plans may be submitted in the future. Should a new application be filed, it is anticipated that additional technical studies and potential adjustments to site location, scale, and impact mitigation will be considered.

Chesapeake’s decision underscores the value of an engaged and informed public, a clear zoning framework, and leadership that is responsive to both innovation and preservation. The city’s process — deliberate, transparent, and aligned with planning best practices — serves as a model for other localities facing similar pressures from industrial-scale infrastructure proposals.

This matter remains active. HRCNN will continue to provide updates on any revised applications, related policy discussions, and community responses. For ongoing coverage and expert analysis on zoning, infrastructure, and responsible development in Hampton Roads, follow the latest at www.earthlyinfrastructure.com/hrcnn.

Built Safe, Built VA | Reaffirming the Industry’s Commitment to Jobsite Safety

By Eric S. Cavallo - Licensed Commercial Building Contractor, Virginia | Member, International Code Council (ICC) | Appointed Board Member, Virginia Beach Board of Zoning Appeals (2025–2029) | Advisory Committee Member, Virginia DHCD – SB195 Code Reform | Founder & CEO, Earthly Infrastructure® Building and Infrastructure Development Inc.

Jobsite safety remains one of the most critical obligations within the construction industry—not merely as a matter of project performance, but as a legal requirement, an ethical imperative, and a professional benchmark. In Virginia, construction safety expectations are governed by a combination of federal and state oversight, including the Virginia Occupational Safety and Health (VOSH) Program, OSHA standards under 29 CFR Part 1926, and enforcement mechanisms contained within the Uniform Statewide Building Code (USBC). These frameworks exist to ensure a uniform minimum standard for safe practice across every licensed construction activity in the Commonwealth.

However, the successful implementation of safety measures is not accomplished by regulation alone. It is achieved through the culture, planning, and day-to-day decisions of builders, subcontractors, project managers, and trade partners. Effective safety programs demand more than posted signage and required PPE—they require comprehensive pre-task planning, documented job hazard analyses, qualified supervision, and transparent chains of responsibility. When these systems fail, the consequences are not theoretical: injuries, litigation, insurance exposure, and long-term reputational harm become very real.

In Virginia’s rapidly growing markets—particularly in the multifamily, commercial, and infrastructure sectors—the complexity of projects compounds risk. Overlapping scopes of work, dense scheduling, and limited staging areas introduce unique safety challenges that cannot be deferred or overlooked. From excavation support systems and fall protection plans to confined space entry and material handling protocols, each phase of construction demands a risk-aware approach. The firms that compete successfully in today’s industry understand that incident prevention is not separate from business strategy—it is central to it.

Furthermore, jobsite safety is not confined to the physical boundaries of the construction zone. Projects that fail to manage public interface—through improperly secured perimeters, unmarked hazards, or insufficient traffic control—can jeopardize public welfare, invite enforcement action, and erode confidence in the construction profession. Safety, therefore, is not merely internal compliance—it is a signal of professionalism to the broader community, including municipalities, neighbors, and end users.

The Built Safe, Built VA initiative was developed to promote a statewide culture of safety-conscious construction, grounded in law and reinforced by ethical practice. In today’s regulatory environment, it is no longer acceptable to treat safety as a temporary campaign or a check-the-box obligation. It must be embedded into the operational DNA of every contractor and design professional licensed to build in Virginia. When we build safely, we protect lives, uphold our licenses, and elevate the industry as a whole.

I invite fellow professionals, regulators, and stakeholders to share their perspectives on how we can continue strengthening safety practices across Virginia’s construction sector. Your insights are welcome as part of this ongoing conversation.