Construction is finally underway on HeadWaters Casino & Resort, a long-awaited gambling destination in Norfolk, Virginia. It’s been four years since voters approved the project, and for a time, there were questions about whether it would ever get off the ground. However, the Pamunkey Indian Tribe, which received the license, found a new development partner, Boyd Gaming, and the two are holding a groundbreaking ceremony today. They expect to complete the permanent resort by 2027, preceded by a temporary location opening November 2025.
In 2020, the Virginia legislature approved five casino locations. Voters approved four in Norfolk, Danville, Portsmouth, and Bristol. The Rivers Portsmouth Casino is the only permanent one currently operating, while temporary locations operate in Danville and Bristol. That will change soon as Hard Rock Bristol is set to open on November 14, while Caesars in Danville is scheduled to open by the end of the year.
Despite being the first to receive a casino license, the Norfolk project has faced multiple delays and was uncertain until recently. Originally, the Pamunkey Tribe had partnered with Tennessee billionaire Jon Yarbrough, who initially promised a $700 million luxury resort called HeadWaters Casino & Resort. It was to feature a casino, venue, a 10-story glass hotel tower, and marina. However, those plans changed several times over the years.
A few months ago, Las Vegas-based Boyd Gaming replaced Yarbrough as the development partner. That resulted in a breakthrough, and things started to move. Earlier this month, the Norfolk City Council approved a development certificate for the casino, allowing construction to begin.
The Project Will Be Smaller
With Boyd Gaming joining Pamunkey, the project has changed significantly, including rebranding. It will no longer carry the Headwaters Resort & Casino name, though the partners have yet to reveal the new name. Also, the partners have reduced the scale of the development.
In 2019, Yarbrough promised a $700 million project, including a 500-room hotel and a casino with 3,500-4,500 slot machines and 100-225 table games. Later, the plan was scaled down to a $500 million development with a 300-room hotel and a casino with about 1,800-2,000 slots and 50 table games.
The size of the development is even smaller with Boyd Gaming. The new casino will include 1,500 slots and 50 table games, and the hotel will have 200 rooms. To meet licensing requirements, Boyd and the Pamunkey will open a 7,200-square-foot temporary casino by Nov. 5, 2025, to maintain compliance with state law. The partners have not shared the cost of the permanent and temporary locations, but it will be over the $300 million required by law.
Virginia’s Fifth Casino Location is Still Uncertain
As Virginia’s fourth casino is getting closer to reality, the location of a fifth approved casino is still in the air. Initially, lawmakers gave it to Richmond, but voters rejected it twice. Lawmakers then selected Petersburg as a potential replacement, but voters must approve that in a November referendum.
However, even before they have their say, controversy has arisen. Earlier this year, Petersburg City Council controversially awarded the license to Cordish Companies behind closed doors. Opponents said the process lacked transparency, and a local union, Unite Here, threatened to sue the city. Still, the proposal remains on the November 5 ballot.
Meanwhile, in Northern Virginia, several unions, including Unite Here, are rallying behind a casino proposal in Tysons. While lawmakers did not approve the location as a potential casino site, the unions support a proposal to change that. If approved, they say the casino and entertainment district project will create 5,000 jobs.
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