By Mithcell Robinson 
The long-delayed Norfolk casino project, initially led by a small federally recognized tribe with no gaming experience, is now seeking to bring in a major player in the U.S. gaming industry to move the development forward.
The Pamunkey Indian Tribe and gaming industry veteran Jon Yarbrough were selected by Norfolk officials before a 2020 local referendum to develop a commercial casino slot real money resort in the Hampton Roads area. While city voters approved the plan, the project has faced numerous delays and obstacles, preventing construction from starting.
According to recent planning documents submitted to the Norfolk City Council and Architectural Review Board, Las Vegas-based Boyd Gaming is poised to take on a significant role in the project. Boyd Gaming is expected to become the majority investor in the Norfolk casino venture.
Rescue By Boyd Gaming
Initially named HeadWaters Resort & Casino, the project has encountered several challenges.
One plan was abandoned due to questions about whether a temporary casino could operate at a different location than the permanent resort. Additionally, a $2.6 billion infrastructure project that includes a 17-foot-high floodwall along the Elizabeth River forced the developers to scrap a planned marina.
With the small Pamunkey tribe lacking the financial resources for a $500 million project, Yarbrough had initially agreed to secure financing and provide expertise in resort design and management. Now, nearly four years later, it seems Yarbrough is stepping aside. He has reportedly agreed to sell his company, Golden Eagle Consulting, LLC, which partnered with the tribe, to Boyd Gaming and the Pamunkeys.
Boyd is expected to acquire an 80% ownership stake in Golden Eagle, while the tribe would retain the remaining 20%. Financial details have not been disclosed, but they may become public since Boyd is a publicly traded company. Boyd Gaming operates 19 casinos across 19 U.S. markets.
Updated Timeline
With Boyd Gaming joining the project, the latest timeline suggests opening a “transitional casino” by early November 2025. This temporary facility would be on the same 13.5-acre site as the permanent resort.
Construction on the permanent casino and hotel is scheduled to begin on January 13, 2025, with an expected opening in September 2027. The updated plan includes 200 hotel rooms, 100 fewer than originally planned, and a 65,000-square-foot casino with 1,000 slot machines, 25 table games, and a 180-seat sportsbook. The overall budget has been reduced from $500 million to $300 million.
The Norfolk City Council is expected to vote on allowing Boyd Gaming to join the development team on September 10. The project will then be presented to the city’s Architectural Review Board for approval.