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Executive Order 11028 ⚖️✨ Zone 2: Zone of Twilight Constitutional Neutral (+0.02) 📜 Art. II §1: Executive Discretion & Internal Operations

Executive Order 11028—Transferring Lands Between the Clark and Mark Twain National Forests (Missouri) and Adding Certain Lands to the Hiawatha National Forest (Michigan)

John F. Kennedy John F. Kennedy
•
Saturday, June 9, 1962
•
1 min read (293 words)

Executive Brief • At a Glance

⏱️ 1 min read (293 words) • ● In Effect
🎯 Primary Mandate

That part of the Clark National Forest lying in townships 23 north to 27 north, inclusive, and ranges 1 and 2 east and 1 to 5 west, inclusive, Fifth Principal Meridian, Missouri, as proclaimed by Proclamation No. 2363 of September 11, 1939 (54 (54 Stat. 2657), as modified by Executive Order No. 10932 of April 7, 1961 (26 F.R. 3051) is hereby transferred of an made a part of the Mark Twain National Forest. 2.

View all 3 directives ↓
⚖️ Constitutional Footing
⚖️✨ Zone 2: Zone of Twilight
Concurrent Authority / Congressional Silence
📜 Art. II §1: Executive Discretion & Internal Operations
Framers' constitutional debate ↓
🏛️ Scope & Affected Sectors
Executive Branch Departments General Body of the People
Inspect unabridged text ↓

Plain-English Translation & Framers' Constitutional Analysis

Early Statesman synthesis distilling legal jargon into practical meaning, statutory anchors, and structural constitutional impacts.

Signed by President John F. Kennedy on June 9, 1962, this order concerns Transferring Lands Between the Clark and Mark Twain National Forests (Missouri) and Adding Certain Lands to the Hiawatha National Forest (Michigan). That part of the Clark National Forest lying in townships 23 north to 27 north, inclusive, and ranges 1 and 2 east and 1 to 5 west, inclusive, Fifth Principal Meridian, Missouri, as proclaimed by Proclamation No. 2363 of September 11, 1939 (54 (54 Stat. 2657), as modified by Executive Order No. 10932 of April 7, 1961 (26 F.R. 3051) is hereby transferred of an made a part of the Mark Twain National Forest. 2.

Constitutional Assessment: This action represents an orderly exercise of Article II administrative discretion, managing the internal machinery and personnel of the executive branch without abridging the ancient liberties of the people.

Key Directives & Operative Actions

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That part of the Clark National Forest lying in townships 23 north to 27 north, inclusive, and ranges 1 and 2 east and 1 to 5 west, inclusive, Fifth Principal Meridian, Missouri, as proclaimed by Proclamation No. 2363 of September 11, 1939 (54 (54 Stat. 2657), as modified by Executive Order No. 10932 of April 7, 1961 (26 F.R. 3051) is hereby transferred of an made a part of the Mark Twain National Forest. 2.

▪

That part of the Mark Twain National Forest lying in townships 31 north to 37 north, inclusive, and ranges 9 west to 13 west, inclusive, Fifth Principal Meridian, Missouri, as proclaimed by Proclamation No. 2362 of September 11, 1939 (54 Stat. 2655), as modified by Executive Order NO. 10932 of April 7, 1961 (26 F.R. 3051), is hereby transferred to and made a part of the Clark National Forest. 3.

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Lot 1, section 25, township 40 north, range 3 west, Michigan Meridian (Round Island) is hereby added to and made a part of the Hiawatha National Forest (Michigan) as proclaimed by Proclamation of January 16, 1939 (53 Stat. 3043), as modified by Proclamation No. 2318 (553 Stat. 2518), Executive Order No. 10932 of April 7, 1961 (26 F.R. 3051), and Executive Order No. 10993 of February 9, 1962 (27 F.R. 1312).

Constitutional & Societal Entities Impacted

🏛️ Executive Branch Departments 🏛️ General Body of the People

Policy Areas & Topics

🏷️ Agriculture
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The Framers' Constitutional Council

1787 Prism

Evaluating this order against the constitutional debates of 1787 and the limits of Article II executive power.

⚖️✨ Zone 2 (Zone of Twilight)
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"When the President acts in absence of either a congressional grant or denial of authority, he can only rely upon his own independent powers, but there is a zone of twilight in which he and Congress may have concurrent authority."

— Justice Robert H. Jackson, Youngstown Sheet & Tube Co. v. Sawyer (1952) Concurrent Authority / Congressional Silence
JM

James Madison

Separation of Powers & Legislative Primacy

"Power is of an encroaching nature, and it ought to be effectually restrained from passing the limits assigned to it." — Federalist No. 48 (1788)

Madison would view this order with watchful scrutiny. Operating in the 'Zone of Twilight' where Congress is silent, each such directive establishes an administrative precedent that steadily expands the executive perimeter at the expense of legislative primacy.

Madisonian Stance: Vigilant / Cautionary
AH

Alexander Hamilton

The Energetic Executive & Unified Command

"A feeble Executive implies a feeble execution of the government; and a government ill executed, whatever it may be in theory, must be, in practice, a bad government." — Federalist No. 70 (1788)

Hamilton would view this directive as the natural and indispensable functioning of administrative leadership. Without the power to coordinate agencies, manage personnel, and resolve operational ambiguities, the modern presidency would be reduced to an impotent figurehead.

Hamiltonian Stance: Defends Vigor & Dispatch
GM

George Mason

Bill of Rights, Due Process & 10th Amendment

"The president will be surrounded by flatterers and sycophants... and the great powers of the executive will gradually absorb the liberties of the people." — Cato IV (Anti-Federalist, 1787)

The Anti-Federalist prism advises continuous democratic vigilance. Even routine administrative directives aggregate centralized federal power away from town halls and state assemblies toward a distant executive apparatus.

Anti-Federalist Stance: Eternal Vigilance Required
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Five Measurable "Constitutional Friction" Dimensions

An objective audit measuring potential separation-of-powers tension against the United States Constitution and established Supreme Court doctrine.

⚖️ Discretionary Twilight Zone
30 / 100 friction index
Dimension 1 • Art. I, §1 & §8

Legislative Encroachment & Purse

Low Friction

Operates within delegated statutory execution without modifying legislative appropriations or taxing powers.

Benchmark: Power of the purse, taxes/tariffs, and rule of law reserved to Congress.
Dimension 2 • Art. II, §1 & §3

Executive Scope & Faithfulness

Low Friction

Exercises standard supervisory executive authority to faithfully execute existing statutes.

Benchmark: Faithfully execute laws enacted by Congress vs. unilateral decree.
Dimension 3 • 10th Amendment

Federalism & State Sovereignty

Moderate Friction

Engages state and local partners in cooperative federalism programs.

Benchmark: Police powers and un-delegated responsibilities reserved to the States.
Dimension 4 • 5th & 14th Amendments

Due Process & Individual Rights

Low Friction

Focuses on internal governmental operations with no direct impairment of private rights or property.

Benchmark: Protection of private property, contracts, liberty, and procedural justice.
Dimension 5 • Separation of Powers

Youngstown Jacksonian Tier

Moderate Friction

The order relies on inherent Article II executive discretion, civil service management, or foreign diplomacy where Congress has neither expressly approved nor prohibited action.

Benchmark: Concurrent Authority / Congressional Silence
⚖️ Audit Synthesis

This order operates within Justice Jackson’s Zone of Twilight, resting upon concurrent presidential authority or congressional silence.

Weighted composite: Art. I (25%), Art. II (25%), Federalism (15%), Due Process (15%), Youngstown (20%).
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How to read these dimensions: Executive power expands whenever an administration acts without explicit statutory authorization from Congress (Article I), touches upon police powers historically reserved to the states (Tenth Amendment), or limits private rights and property without judicial process. A low friction score indicates strict concordance with enacted law; a high friction score highlights orders testing the limits of presidential discretion.
Total Words
293
1,618 characters
Estimated Read Time
1 min
@ 200 words / min
Flesch-Kincaid
6.7
Grade 7
Language Tone Score
+0.02
Constitutional Neutral
How is this scored?
Text size:

Official Archival Text

View Source Document

By virtue of the authority vested in me by section 24 of the Act of March 3, 1891 (26 Stat. 1103; 16 U.S.C. 471), the Act of June 4, 1897 (30 Stat. 34, 36; 16 U.S.C. 473), and as President of the United States, and upon the recommendation of the Secretary of Agriculture, it is ordered as follows: 1. That part of the Clark National Forest lying in townships 23 north to 27 north, inclusive, and ranges 1 and 2 east and 1 to 5 west, inclusive, Fifth Principal Meridian, Missouri, as proclaimed by Proclamation No. 2363 of September 11, 1939 (54 (54 Stat. 2657), as modified by Executive Order No. 10932 of April 7, 1961 (26 F.R. 3051) is hereby transferred of an made a part of the Mark Twain National Forest. 2. That part of the Mark Twain National Forest lying in townships 31 north to 37 north, inclusive, and ranges 9 west to 13 west, inclusive, Fifth Principal Meridian, Missouri, as proclaimed by Proclamation No. 2362 of September 11, 1939 (54 Stat. 2655), as modified by Executive Order NO. 10932 of April 7, 1961 (26 F.R. 3051), is hereby transferred to and made a part of the Clark National Forest. 3. Lot 1, section 25, township 40 north, range 3 west, Michigan Meridian (Round Island) is hereby added to and made a part of the Hiawatha National Forest (Michigan) as proclaimed by Proclamation of January 16, 1939 (53 Stat. 3043), as modified by Proclamation No. 2318 (553 Stat. 2518), Executive Order No. 10932 of April 7, 1961 (26 F.R. 3051), and Executive Order No. 10993 of February 9, 1962 (27 F.R. 1312). This order shall become effective on July 1, 1962. JOHN F. KENNEDY

THE WHITE HOUSE, #signature

June 9, 1962

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Scholarly & Legal Citations 

Exec. Order No. 11,028 (June 9, 1962), https://executiveordersarchive.org/orders/app-executive-order-11028-transferring-lands-between-the-clark-and-mark-twain-national-forests.