It is confusing because there are still so many descriptors for tyres and rims around and they jump between metric and imperial. There is a standard called ERTO and that is always in the format xx-xxx or xxx-xx, where the xx is the width of tyre or internal rim width and xxx is the diameter, both numbers are always in mm.
So a road rim 700c would typically be 622-13 up to 622-15, an in betweenie would be 622-17, touring/general 622-19 and heavy touring/serious off road are wider.
There are claims around the ideal size of tyre being at a ratio of about 1.8, so take the rim width internal and multiply that by 1.8 to get the ideal tyre width. There are further recommendations that indicate the ratio can fall in the range 1.4 to 2.2 so for a 622-19 rim that would be:-
1.4 x 19 = 27mm
2.2 x 19 = 42mm
You can go above and below these limits, going lower is generally thought of as worse than going bigger. In actual fact you'll see many manufacturers indulging in ratios up to x3 or greater.
That said if you're running M+ at 700x35 you would see a marked improvement in speed, comfort and weight by running a Marathon Supreme, or similar, in sizes from 700x32 up to 700x42. The differences between your desired 700x28 and a lighter, faster rolling, larger tyre like the M Supreme would be minimal and the bigger tyre would probably be comfier.