Deconstructing the Madison Avenue Expressway

Construction is scheduled to begin this year to convert the underutilized Madison Avenue Expressway in Indianapolis, Indiana, into a multi-modal corridor.

History

By the early 1950s, traffic congestion had been alleviated in portions of Indianapolis; however, the city’s south side continued to experience significant issues because of outdated infrastructure, including narrow roads and frequent at-grade railroad crossings, which contributed to ongoing delays and inefficiencies. ¹ One of the worst examples was Madison Avenue, which was obstructed as many as 120 times per day—sometimes for up to four hours. ¹¹

In response, the Indiana State Highway Commission announced a proposal on January 31, 1952, to upgrade the existing Madison Avenue corridor into what would become known as the Madison Avenue Expressway. ¹¹ The $3 million project called for lowering Madison Avenue by approximately 20 feet to allow it to pass beneath both the Indianapolis Belt Railway and the Pennsylvania Railroad. ^{1 9} A significant portion of the budget was dedicated to property acquisition along a 15-block stretch from Ray and Bicking Streets, near downtown, to East Southern Avenue. The proposed design featured three through lanes in each direction, a 16-foot median, curbs, and sidewalks. ^{1 3}

The expressway plan received official approval in February 1952. ^{2 10}

Construction contracts for the Madison Avenue Expressway were announced in May 1954. ¹ Later that year, the project design was revised to incorporate grade separations at Morris Street, Prospect Street, and Raymond Street. These overpasses were constructed without access ramps. The modifications increased the overall project cost by more than $1 million.

Demolition for the Madison Avenue Expressway began in June 1955, although progress was uneven due to complications with real estate transactions. ¹ In other areas, construction advanced more smoothly. The new Madison Avenue bridge over Pleasant Run opened on July 29, 1955.

In April 1957, a scandal involving profiteering in right-of-way acquisitions by state officials and their associates came to light. ² Former State Highway Commission Chairman Virgil W. Smith and his associate, Milan attorney Robert A. Peak, were convicted of conspiracy to embezzle $25,800 in state funds through transactions involving two back lots along the proposed route. Both received prison sentences ranging from two to fourteen years. In a related case, Marvin Preble, a house mover from Austin, was convicted of filing a false claim. Although he was sentenced to one to ten years, the sentence was suspended. Additionally, state examiners reported excessive spending in several instances, although no further criminal charges were filed. In five cases, property owners were paid $117,350 for land not required for the expressway. Another five were paid $332,500 for land, of which only one-third was actually needed.

The 1.8-mile Madison Avenue Expressway officially opened to traffic on September 23, 1958. ^{1 2} Governor Harold W. Handley presided over the dedication, cutting the ribbon with golden scissors provided by the Madison Avenue Businessmen’s Association. ² At that time, only the section from Pleasant Run Parkway to Southern Avenue was ready for use; the northern section, from Pleasant Run Parkway to Delaware Street, opened on October 1.

Despite the expressway’s cost and high traffic capacity, several at-grade intersections disqualified it from inclusion in the newly planned federal interstate highway system. ² Interstate 65 was instead routed through central Indianapolis.

By the time of its completion, the total cost of the project had reached $8.3 million—more than double the original estimate. ^{1 2 7}

Although the expressway was intended to reduce congestion on the original Madison Avenue and had a posted speed limit of 45 miles per hour, actual driving speeds were often reduced to 25 or 30 miles per hour due to persistent traffic. ⁴ Further complications arose as motorists parked in the right travel lane to access nine businesses located along the route. ⁶ A parking ban was not implemented until 1959.

In 1964, the Indiana Supreme Court unanimously ruled that a property owner was entitled to full compensation for the loss of direct highway access, even if no land was physically taken. ⁵ The court upheld an award of $87,000 plus interest to Geiger and Peters Inc., Harold I., Oscar C., Lena B. Peters, and Oklahoma Oil Company. The case, initiated in 1956, involved a steel fabricating firm located at the corner of Madison Avenue and Caven Street. The firm, along with a filling station operated on a leased portion of the property, lost direct access to the newly depressed roadway. The only remaining route required navigating narrow city streets, which rendered truck access—particularly for long steel beams up to 90 feet—impractical.

Proposals to extend the expressway an additional ten miles south along Indiana State Road 431 to the northern edge of Greenwood were developed and formally accepted by the Federal Bureau of Roads, ⁷ but the extension was never constructed. ¹

Reconfiguration

The City of Indianapolis is undertaking a comprehensive $16.2 million reconstruction of Madison Avenue, spanning from Pleasant Run Parkway to Ray Street near downtown. ^{8 12} This initiative is part of a broader $47 million, three-phase “road diet” project aimed at enhancing safety, promoting walkability, and improving multimodal transportation options along the corridor.

Scheduled to commence in the second quarter of 2025, the first phase of the project focuses on reducing vehicular lanes from six to four, thereby reallocating space for pedestrian and cyclist infrastructure. ¹³ This includes the addition of the Interurban Trail, a 7,200-foot shared-use path designed to connect with the existing Interurban Trail and extend it southward to Hanna Avenue . The project also plans to install 15,000 linear feet of new curbs and sidewalks, further enhancing the pedestrian environment.

Funding for the project is sourced from multiple rounds of federal grants administered through the Indianapolis Metropolitan Planning Organization (IMPO). ^{13 14} The city’s Department of Public Works has emphasized that this reconstruction aligns with the “Complete Streets” policy, aiming to create roadways that accommodate all users, including drivers, pedestrians, cyclists, and public transit riders.

The reconstruction is anticipated to be completed by the end of 2026, marking a significant step toward transforming Madison Avenue into a safer and more accessible corridor for all modes of transportation.

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Gallery

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Sources

1. Simpson III, Richard M. “Madison Avenue Expressway.” Indiana Transportation History, 31 Mar. 2020.
2. “Madison Avenue Expressway Will Open Tuesday.” Anderson Herald, 21 Sept. 1958, p. 28.
3. Myers, Hortense. “Madison Avenue Expressway-Focal Point Of Highway Scandal-To Open In September.” Chronicle Tribune, 25 Jul. 1958, p. 14.
4. Friedersforf, Max. “Snail-Pace Drivers Block Expressways.” Indianapolis News, 18 Aug. 1959, p. 17.
5. Doherty, Paul M. “Ruling May Cost State Millions.” Indianapolis Star, 13 Mar. 1964, pp. 1-12.
6. “Parking Ban Likely On Expressway.” Indianapolis Star, 24 Mar. 1959, p. 28.
7. “New Madison Expressway Opened.” Indianapolis Star, 24 Sept. 1958, p. 1.
8. “Major Transportation and Infrastructure Projects.” Indy.gov.
9. “Underpass to Cut Off Six Streets.” Indianapolis News, 6 Aug. 1953, p. 23.
10. “Madison Avenue Expressway Plans Approved.” Indianapolis News, 8 Feb. 1952, p. 1.
11. “Two Madison Passes and 6 Lanes Planned.” Indianapolis News, 31 Jan. 1952, p. 1.
12. Briggs, James. “Madison Avenue to Undergo Three-Phase, $47M ‘Road Diet.’” Indianapolis Business Journal, 18 Apr. 2024.
13. Eason, Katie. “Here’s What You Need to Know about Road Construction Season in Indianapolis.” Axios Indianapolis, 9 May 2024.
14. Shepherd, Eric Berman. “Indy Road and Trail Upgrades Begin with $268 Million Boost.” WIBC 93.1 FM, 4 Apr. 2024.