On November 30, 1863, the United States Department of War authorized Indiana Governor Oliver P. Morton to raise one regiment of infantry composed of African Americans.

Reverend Willis Revels and Garland H. White, both ministers of the African Methodist Episcopal Church in Indianapolis, Indiana was the chief recruiting officer.

Placed in charge of the newly formed unit was Charles Sawyer Russell, a captain of the 11th U.S. Infantry Regiment who was (on 1 May 1864) appointed Lieutenant Colonel and battalion commander of the six organized companies.

Following the Battle of the Crater, the depleted ranks of the 28th were filled with four more companies of recruits raised in Indiana and sent to make the command a full regiment.

[2] After the Confederate surrender at Appomattox, the 28th was moved to the Mexican border in Texas as part of the American response to the French intervention in Mexico.