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.

ENERGY STAR® NextGen Certified Homes: Setting a New Standard for Residential Efficiency

By HRCNN – Hampton Roads Construction News Network Staff Writer

The U.S. Environmental Protection Agency (EPA) has unveiled the ENERGY STAR® NextGen Certified Homes Program, an advanced designation aimed at reshaping the future of energy-efficient residential construction. Building upon the proven success of the original ENERGY STAR for Homes certification, the NextGen label introduces more stringent performance criteria, modernized technical requirements, and integrated pathways to achieve net zero-ready status. This initiative reflects a broader national strategy to reduce carbon emissions, enhance grid resilience, and provide lasting energy savings for homeowners.

ENERGY STAR NextGen Certified Homes are designed to meet a new tier of environmental performance by incorporating high-efficiency HVAC systems, smart home technologies, electric-ready infrastructure, and enhanced thermal enclosures. The program mandates independent third-party verification and performance testing to ensure rigorous quality control across all construction phases. By aligning design and construction standards with evolving federal climate goals, the NextGen program positions builders and contractors at the forefront of compliance and consumer trust in the clean energy era.

For builders and contractors operating within the Hampton Roads region, the NextGen certification framework offers a distinct market differentiator. As municipalities across the Commonwealth of Virginia increasingly prioritize climate-resilient growth, ENERGY STAR NextGen homes provide a compliant and future-ready housing typology. Furthermore, this designation may help contractors meet or exceed local and regional energy codes, secure utility incentives, and qualify for potential federal tax credits under the Inflation Reduction Act (IRA).

The implications for permitting, zoning, and long-term site performance are substantial. ENERGY STAR NextGen Certified Homes are not merely efficient—they are forward-thinking infrastructure investments that reduce community strain on electrical grids and water systems. By designing for electrification-readiness, builders and contractors help future-proof housing stock against grid instability and prepare communities for an anticipated expansion of renewable energy sources. Additionally, improved indoor air quality and envelope tightness align with public health standards and tenant protections now emphasized in many Virginia jurisdictions.

From a consumer perspective, ENERGY STAR NextGen homes deliver verified energy savings, improved comfort, and lower utility bills—all underpinned by the EPA’s trusted certification mark. As awareness grows among homebuyers and policymakers alike, certified builders and contractors gain a reputational advantage for delivering homes that prioritize both performance and sustainability. In a housing market increasingly driven by transparency and accountability, ENERGY STAR NextGen represents a legally defensible and environmentally responsible certification for residential construction professionals.

Earthly Infrastructure® Building and Infrastructure Development Inc., a proud ENERGY STAR® Partner, actively supports the deployment of certified homebuilding standards across Virginia. This formal partnership was established under the leadership of company founder Eric S. Cavallo, who remains committed to aligning Earthly Infrastructure’s mission with nationally recognized energy performance goals. As a regional advocate for high-efficiency and climate-resilient construction, Earthly Infrastructure® continues to promote ENERGY STAR initiatives through its projects, educational outreach, and the Hampton Roads Construction News Network.

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.

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.