Convention Center & Casino Info
The Winchester EDA is evaluating a possible convention and entertainment center development project with a regulated live gaming component and hotel, more commonly referred to as a casino.
Why?
- The project could bring new tax revenue and economic activity, including high paying jobs, to the city
- Past studies show a standalone convention and entertainment center would require significant taxpayer subsidization. A regulated gaming component would remove the need for subsidies because casino operators are ineligible for State and Local economic incentives, making the project more financially feasible without expending tax dollars
- Winchester currently relies heavily on property taxes to fund services. The cost of providing high quality services continues rise due to nationwide inflation. A casino-enabled project could diversify tax revenue, bringing new tax dollars from non-residents and supporting regional job growth without increasing the tax burden on residents
- Regional economic influences increase the cost of living (e.g. competition from nearby high-growth jurisdictions like Fairfax and Loudoun)
- Historical manufacturing and retail growth trends are changing nationally, prompting Winchester to plan for what our economy will look like decades ahead
This page serves as a resource for information about a possible casino development, including background information, an overview of process, data regarding similar developments, and mechanisms for community feedback. This EDA website is entirely constructed, maintained, and updated by EDA staff. This page will be continuously updated as information develops.
Learn More
Data Overview
In 2025, the Winchester EDA commissioned a quantitative analysis regarding the financial and social impacts of a casino development. Highlights of this study are discussed below with deeper dives in the "Data" section of this site.
A development of this nature would generate tax revenue beyond the required local gaming tax. Casino operators must pay real estate taxes, personal property taxes, business personal property, and business license taxes like all other business in the City. Taxes such as the sales tax, meals tax, lodging tax, and admissions taxes are use taxes that are tied to individual consumption habits. Increased tourism derived from a casino would increase projected use taxes.
Estimated Annual Local Tax Revenue from Convention & Casino Development (2025 Dollars)
| Revenue Source |
Tax Rate |
Tax Base |
Annual Tax Revenue |
|
Real Property Tax
|
$0.795/$100 |
$172,600,000 |
$1,372,000 |
| Business Personal Property |
$4.50/$100 |
$71,700,000 |
$1,936,000 |
| Sales Tax |
1.00% |
$78,010,000 |
$780,000 |
| Meals Tax |
6.50% |
$31,827,000 |
$2,069,000 |
| Lodging Tax |
8.00% |
$16,722,000 |
$1,338,000 |
| Gaming Tax |
6%, 7%, 8% |
$300,000,000 |
$19,000,000 |
| Business License Tax |
$0.2 per $100 |
$378,010,000 |
$756,000 |
| Admissions Tax |
5.00% |
$6,300,000 |
$315,000 |
| Annual Local Tax Revenue |
|
|
$27,566,000 |
For reference, the FY26 budget for the City of Winchester is $120.5 million. A projected annual local tax revenue of approximately $27.6 million would represent an annual cash influx equal to 23% of the City's current budget.
Proposed Spending Priorities
Of the previously discussed $27.6 million in tax benefit the City of Winchester could receive, approximately $19 million would come from the State mandated gaming tax. If a development of this type were approved, the Winchester EDA advocates for City Council to consider the following spending priorities for any gaming tax received:
| Category |
Description |
Percentage |
Proposed Investment Range |
| City Infrastructure |
Traffic Improvements, Stormwater Management |
5 - 20% |
$950,000 - $3,800,000 |
| Economic Development |
Business Attraction, Retention, Expansion, Housing Affordability |
5 - 20% |
$950,000 - $3,800,000 |
| Education |
Winchester Public Schools |
5 - 20% |
$950,000 - $3,800,000 |
| Long-term Financial Stability |
Debt Service on Long-term Capital Improvement Projects |
5 - 20% |
$950,000 - $3,800,000 |
| Public Safety |
Law Enforcement, Fire & Rescue |
5 - 20% |
$950,000 - $3,800,000 |
| Quality of Life |
Walkability, Public Parks, Recreational Programming |
5 - 20% |
$950,000 - $3,800,000 |
| |
|
|
|
| Remainder (General Fund) |
Council Priorities (including effective tax rate stabilization) |
10% |
$1,900,000 |
With an estimated annual gaming tax revenue of $19 million dollars, this split would allocate an approximate range of $950,000 to $3.8 million to each listed priority per year with a remainder earmarked for the General Fund. The EDA would further advocate for all other taxes received from a development of this type (Real Estate, Business Personal Property, Sales, Meals, Lodging, Business License, and Admissions taxes), approximately $8.5 million, be applied towards the General Fund to finance Council priorities including effective tax rate stabilization.
Employment Opportunities
Casino operators are regional employers with complex labor needs. The benefits of a large regional employer are not exclusive to the City of Winchester. The largest share of Winchester's labor force lives in Frederick and Clarke Counties. Job growth in Winchester will result in economic growth and opportunities in neighboring jurisdictions.
Initial Construction Benefit
| Category |
Local |
Region |
State |
| Jobs |
60 |
230 |
390 |
| Associated Wages and Benefits |
$3.4 million |
$14.5 million |
$25.2 million |
| Economic Output |
$12.5 million |
$46.8 million |
$79.8 million |
Annual Ongoing Operational Benefit
| Category |
Local |
Region |
State |
| Jobs |
2,400 |
3,100 |
3,700 |
| Associated Wages and Benefits |
$147.6 million |
$180.9 million |
$217.5 million |
| Economic Output |
$527.9 million |
$639.3 million |
$744.4 million |
Casinos require significant, private investment and are ineligible for economic development incentives. Initial private investments for Virginia's currently approved casinos range from $340 million to $1.4 billion in construction alone.
Private Investments from Virginia's Currently Approved Casinos
| Location |
Operator |
Initial Investment |
Opening Date |
| Bristol |
Hard Rock International |
$515 million |
Temp: Jul. 2022
Perm: Nov. 2024
|
| Danville |
Caesars Entertainment |
$750 million |
Temp: May 2023
Perm: Dec. 2024
|
| Norfolk |
Boyd Gaming/Pamunkey Tribe |
$750 million |
Temp: Nov. 2025
Perm: Late 2027
|
| Portsmouth |
Rush Street Gaming |
$340 million |
Perm: Jan. 2023 |
| Petersburg |
Bruce Smith Enterprise LLC/The Cordish Companies |
$1.4 billion |
Temp: Early 2026
Perm: Late 2027
|
Last updated 12/19/25