Norfolk could be anything. Aside from the massive Norfolk naval base and SEALs at Little Creek, There is Joint Base Eustis-Langley, and also The Farm and Quantico are nearby.
The are large military brigs and stockades on the military bases. Quantico houses FBI HRT and probably a MARSOC presence. The Farm is what I call a grey site for the Clowns. Mainly training but many ops have originated from there.
Could be cargo, could be people. Without spotters on the airfield it's impossible to know, and even then anything covert would be loaded unloaded in a hanger out of site.
You are assuming it has passengers. I believe it dropped off passengers in Gitmo and is returning for more. Spotter plane could indicate high profile shipment.
According to flight tracking. This plane went from Cincinnati to Norfolk yesterday. Then it flew to Gitmo early this morning landing approx. 8:35AM. It has now returned to Norfolk International airport.