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1. Position two oven racks in top and bottom third of oven. Preheat oven to 350 degrees. Line two cookie sheets with parchment paper.
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2. In a bowl, whisk flours, baking soda and salt together. In a mixer, cream together the sugar, butter and orange zest at medium speed until light and smooth, about 3 minutes. Scrape down the sides of bowl frequently. Add egg and mix. Add one egg yolk and mix. Add remaining egg yolk and mix. Stir in dry ingredients just until combined.
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3. Scoop tablespoons of dough onto parchment, leaving more than 1 inch between cookies. Press each one down lightly with 2 fingers to flatten to a thickness of 1/2 inch. Leave any ridges and valleys on top of cookie intact, but smooth the edges.
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4. Bake about 15 minutes, rotating cookie sheets halfway through. Cookies should be pale but baked all the way through. Cool on sheets 5 minutes, then transfer to a rack and cool before storing in airtight containers up to 1 week.
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5. When ready to serve, make icing: Bring a small pot of water to a boil. Peel orange, being careful to remove only outer orange zest, and cut into thin strips. Blanch in boiling water 1 minute; drain. Sift confectioners' sugar into a bowl. Whisk in 2 tablespoons milk. Whisk in more milk if needed to make mixture thin enough to spread. Add extract, salt and zest, and whisk to combine.
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6. Place cookies on a rack and drizzle icing over each one (make sure there is some orange zest in each spoonful). Icing will settle into cookie crevices; let harden.
