Here, then, assembled the whole congregation of the children of Israel, to set up the tabernacle, probably with some such rites as David performed when it was transferred from the house of Obed-Edom to Mount Zion. Hitherto it had remained at Gilgal, the headquarters and depôt of the nation. The "whole congregation" that now assembled does not necessarily mean the whole community, but only selected representatives, not only of the part that had been engaged in warfare, but also of the rest of the nation.
If we try to form a picture of the state of Israel while Joshua was carrying on his warlike campaigns, it will appear that his army being but a part of the whole, the rest of the people were occupied in a somewhat random manner, here and there, in providing food for the community, in sowing and reaping the fields, pasturing their flocks, and gathering in the fruits. And from the tone of Joshua it would appear that many of them were content to lead this somewhat irregular life. In a somewhat sharp and reproachful tone he says to them, "How long are ye slack to go to possess the land which the Lord God of your fathers has given you?" One of Joshua's great difficulties was to organize the vast mass of people over whom he presided, to prevent them from falling into careless, slatternly ways, and to keep them up to the mark of absolute regularity and order. Many of them would have been content to jog on carelessly as they had been doing in the desert, in a sort of confused jumble, and to forage about, here and there, as the case might be, in pursuit of the necessaries of life. Their listlessness was provoking. They knew that the Divine plan was quite different, that each tribe was to have a territory of its own, and that measures ought to be taken at once to settle the boundaries of each tribe. But they were taking no steps for this purpose; they were content with social hugger-mugger.
Joshua is old, but his impatience with laziness and irregularity still gives sharpness to his remonstrance, "How long are ye slack to possess the land?" The ring of authority is still in his voice; it still commands obedience. More than that, the organizing faculty is still active--the faculty that decides how a thing is to be done. "Give out from among you three men for each tribe; and I will send them, and they shall rise and go through the land and describe it according to the inheritance of them."
The men are chosen, three from each of the seven tribes that are not yet settled; and they go through and make a survey of the land. Judah and Joseph are not to be disturbed in the settlements that have already been given to them; but the men are to divide the rest of the country into seven parts, and thereafter it is to be determined by lot to which tribe each part shall belong. It would appear that special note was to be taken of the cities, for when the surveyors returned and gave in their report they "described the land by cities into seven parts in a book." Each city had a certain portion of land connected with it, and the land always went with the city. The art of writing was sufficiently practised to enable them to compose what has been called the "Domesday Book" of Canaan, and the record being in writing was a great safeguard against the disputes that might have arisen had so large a report consisted of mere oral statement. When the seven portions had been balloted for, there was no excuse for any of the tribes clinging any longer to that nomad life, for which, while in the wilderness, they seem to have acquired a real love.
And now we come to the actual division. The most interesting of the tribes yet unsupplied was Benjamin, and the region that fell to him was interesting too. It may be remarked as an unusual arrangement, that when portions were allotted to Judah and to Ephraim, a space was allowed to remain between them, so that the northern border of Judah was at some distance from the southern border of Ephraim. As Judah and Ephraim were the two leading tribes, and in some respects rivals, the benefit of this intervening space between them is apparent. But for this, whenever their relations became strained, hostilities might have taken place.