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
The Hampton Roads Construction News Network (HRCNN) is an independent editorial platform tracking the intersection of zoning, infrastructure, environmental development, and regional planning across coastal Virginia. We welcome contributions from professionals, civic leaders, and community members who share a passion for responsible growth and resilient design.

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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.

Redesigning the Footprint: How Environmental Site Design Is Shaping Smarter, Safer Development Across Virginia

By Eric S. Cavallo
Founder, Earthly Infrastructure® | Advisor, Virginia DHCD | Board Member, VB BZA

Chesapeake, VA – July 2025
As the Commonwealth faces rising development pressure alongside increasing environmental risk, Virginia builders and planners are being asked to do more than just meet minimum code. They’re being called to design with nature, not against it.

Enter Environmental Site Design (ESD)—an integrated planning strategy that places stormwater site design and open space development at the center of project success. As Total Maximum Daily Load (TMDL) regulations tighten and public expectations rise, ESD is no longer a niche innovation—it’s the foundation of responsible land use.

“In the Chesapeake Bay watershed, how we plan a site is just as important as what we build on it,” said Eric S. Cavallo, founder of Earthly Infrastructure® and advisor to Virginia’s Department of Housing and Community Development. “Stormwater can’t be treated as an afterthought. It’s the design driver.”

What Is Environmental Site Design?

Environmental Site Design (ESD), also referred to as low-impact development (LID), emphasizes natural systems and minimal disturbance from the outset of a project. The goal is to manage stormwater at the source, reduce runoff volume, and maintain pre-development hydrology.

Core ESD principles include:

• Stormwater Site Design:
  Techniques such as bioswales, rain gardens, infiltration basins, and permeable pavements slow, filter, and absorb runoff close to where it falls. This helps meet VSMP and SWPPP requirements under Virginia’s Stormwater Management Regulations.

• Open Space Development:
  By clustering buildings, reducing roadway footprints, and preserving vegetated buffers, developers can maintain large portions of undisturbed open space. This not only reduces impervious surface coverage, but provides community access to trails, parks, and natural viewsheds.

• Minimizing Land Disturbance:
  Grading only where necessary and preserving native soil and tree cover helps prevent erosion and sedimentation downstream—benefiting both project budgets and the Bay.

“These are not add-ons. They are fundamental planning decisions that influence everything from stormwater credits to market appeal,” Cavallo said.

Why ESD Matters in Virginia

Virginia’s Chesapeake Bay Preservation Act and Stormwater Management Program make clear that controlling pollution at the lot level is non-negotiable. Any land-disturbing activity over one acre—or within a Chesapeake Bay Resource Protection Area (RPA)—must include a Stormwater Pollution Prevention Plan (SWPPP) that demonstrates runoff reduction and sediment control.

ESD practices are often the most cost-effective path to compliance. For example:

• Reducing impervious surfaces can lower the cost of underground detention systems.

• Maintaining open space may help meet local overlay or zoning bonus requirements.

• On-site stormwater features can reduce the burden on municipal infrastructure and avoid offsite nutrient credits.

More Than Compliance—A Competitive Edge

Developers and builders who adopt ESD are increasingly gaining faster approvals, community goodwill, and long-term operational savings. In places like Chesapeake, Virginia Beach, and Norfolk, where drainage and flooding are constant concerns, projects that incorporate ESD principles are viewed as forward-thinking—not risky.

“Good stormwater design is good business,” Cavallo emphasized. “It reduces liability, enhances site resilience, and aligns with what local governments are actively prioritizing.”

From the Bay to the Boardroom: Leading by Example

At Earthly Infrastructure®, every project begins with three questions:

1. How will this site absorb or deflect stormwater?

2. How much open space can be preserved without compromising density?

3. How can this design align with both regulatory standards and long-term ecological function?

These are the same questions underpinning Virginia’s statewide efforts to modernize zoning, encourage green infrastructure, and meet its Watershed Implementation Plan (WIP) targets.

Through the Built Safe, Built VA™ campaign, Earthly Infrastructure® is highlighting how environmentally intelligent site design can coexist with economic growth—setting a new standard for what it means to build responsibly in the Commonwealth.

About the Author
Eric S. Cavallo is a Virginia Class B Commercial Building Contractor, ICC Member, and Founder of Earthly Infrastructure®. He serves on the Virginia Beach Board of Zoning Appeals and advises the Virginia Department of Housing and Community Development on regulatory reform, including building code modernization and environmental planning.

Adaptive Reuse in Virginia: A Regulatory Framework for Reviving Retail Sites

By Eric S. Cavallo
Virginia Licensed Contractor (Commercial Building); Board Member, Virginia Beach Board of Zoning Appeals; Advisor, Virginia DHCD – Single‑Stair Exit Reform Stakeholder Committee; International Code Council (ICC) Member; Founder & President, Earthly Infrastructure®

The decline of regional shopping malls across the Commonwealth has introduced a complex land use dilemma for municipalities, planners, and policymakers. Once considered cornerstones of suburban economic development, many of these properties now stand largely vacant, structurally outdated, and commercially obsolete. However, their location, scale, and infrastructure access position them as high-potential candidates for adaptive reuse—if approached through a framework of legal clarity, regulatory flexibility, and long-term community value.

Adaptive reuse, in this context, is not limited to architectural retrofitting. It encompasses the comprehensive reclassification of land use purpose, including the integration of mixed-income housing, municipal services, civic space, and environmentally resilient infrastructure within sites previously designated for single-use retail. Such conversions require thoughtful zoning interpretation, updated comprehensive planning language, and in many cases, negotiated variances to enable economically feasible and legally compliant redevelopment outcomes.

Virginia’s Uniform Statewide Building Code (USBC) and local zoning ordinances can either inhibit or facilitate these efforts depending on the jurisdiction’s posture toward reclassification, density allowances, and parking requirements. Municipalities seeking to lead in this area may consider adopting overlay zones or special exception pathways that support flexibility while preserving core safety, access, and land use compatibility standards. Additionally, state-level incentives—such as Industrial Revitalization Fund (IRF) grants—may offer valuable financial support when paired with public-private implementation agreements.

From a governance standpoint, transparency in permitting, clearly defined site plan review procedures, and early interdepartmental coordination are essential. Localities must balance the interests of economic development with long-term land use resilience, ensuring that reactivated mall sites serve broader public objectives. Successful projects are those that integrate transportation connectivity, code compliance, and meaningful community benefit—whether through affordable housing units, public space commitments, or green infrastructure performance.

Ultimately, the adaptive reuse of Virginia’s vacant malls is not simply a design challenge—it is a test of public leadership, legal adaptability, and professional resolve. As demographic patterns shift, greenfield development diminishes, and infrastructure costs escalate, the value of repurposing these properties becomes both practical and imperative. What becomes of these spaces will reflect not only local economic priorities, but also our collective capacity to govern with foresight. Communities that approach this process with legal precision, policy clarity, and long-term public interest in mind will not just reclaim space—they will redefine it for generations to come.