Moses
Numbers 2:7ESV·traditional attribution

Then the tribe of Zebulun, the chief of the people of Zebulun being Eliab the son of Helon,

Matthew Henry Presbyterian @wholebiblehenry

We have here the particular distribution of the twelve tribes into four squadrons, three tribes in a squadron, one of which was to lead the other two. Observe, 1. God himself appointed them their place, to prevent strife and envy among them.

Commenting on Numbers 2:3-34

John Gill Reformed Baptist @doctorgill

Then the tribe of Zebulun,.... He pitched next; though the order of their encampment was not, as it may seem, first Judah, after him Issachar, and below him Zebulun; for Judah lay between these two, the one before him, and the other behind him; and it was Issachar that was behind, and Zebulun before, as Aben Ezra observes; they were pitched on each side of...

Jamieson-Fausset-Brown Reformed @jfbcommentary

Then the tribe of Zebulun--on the other side. While Judah's tribe was the most numerous, those of Issachar and Zebulun were also very numerous; so that the association of those three tribes formed a strong and imposing van.