Of the various roles Moses fulfills, as leader of his people, one role is to administer justice. If there are 600,000 men (or even 600 clans), this is a significant role.
Exodus 18: 1-4, Jethro, priest of Midian, hears of Moses' victory
Now Jethro, the priest of Midian and father-in-law of Moses, heard of everything God had done for Moses and for his people Israel, and how the LORD had brought Israel out of Egypt. After Moses had sent away his wife Zipporah, his father-in-law Jethro received her and her two sons. One son was named Gershom, for Moses said, "I have become an alien in a foreign land"; and the other was named Eliezer, for he said, "My father's God was my helper; he saved me from the sword of Pharaoh."
In verse 3 "Gershom" sounds like the Hebrew for "an alien there" and "Eliezer" means "my God is helper".
I see no explanation for why Moses sent away his wife and sons. This was apparently before Moses visited Pharaoh....
Exodus 18: 5-8, Moses reunited with wife and sons
So Moses went out to meet his father-in-law and bowed down and kissed him. They greeted each other and then went into the tent. Moses told his father-in-law about everything the LORD had done to Pharaoh and the Egyptians for Israel's sake and about all the hardships they had met along the way and how the LORD had saved them.
Moses catches Jethro up on all the events and the news. The relationship between Moses and Jethro seems to be friendly.
Exodus 18: 9-12, Support from Jethro
Then Jethro, Moses' father-in-law, brought a burnt offering and other sacrifices to God, and Aaron came with all the elders of Israel to eat bread with Moses' father-in-law in the presence of God.
Like the Egyptians and others of this day, YHWH is recognized as better than the "other gods". Jethro has heard of the things YHWH has done for the people of Israel and publicly recognizes that YHWH is king of all gods.
Exodus 18: 13-16, Moses wearied by decision-making
Moses answered him, "Because the people come to me to seek God's will. Whenever they have a dispute, it is brought to me, and I decide between the parties and inform them of God's decrees and laws."
Jethro has some experience and advice. He is shocked that Moses is taking all the work on himself.
Exodus 18: 17-23, Jethro has wise advice
But select capable men from all the people--men who fear God, trustworthy men who hate dishonest gain--and appoint them as officials over thousands, hundreds, fifties and tens. Have them serve as judges for the people at all times, but have them bring every difficult case to you; the simple cases they can decide themselves. That will make your load lighter, because they will share it with you.
If you do this and God so commands, you will be able to stand the strain, and all these people will go home satisfied."
Jethro suggests some basic delegation of responsibilities.
Exodus 18: 24-27, Leaders chosen
Then Moses sent his father-in-law on his way, and Jethro returned to his own country.
Moses agrees. Although the suggestions are fairly simple, it is likely that in this intervention Jethro forces Moses to step back and agree to a more general approach to dispensing justice.
Then Jethro (and Zipporah and sons?) return to Jethro's home in Midian. Note that the aid of this Midianite, at the birth of the nation of Israel, is recorded here. A later story, the story of Ruth, will acknowledge the value of a woman from Moab. A number of heroes of the Old Testament will be from outside Israel!
This chapter is a strange interlude in the story of the exodus from Egypt. Why is it here? I suspect that the events in this chapter prepare us for the lengthy smaller decrees we will read after the Ten Commandments are given. Before the Ten Commandments (coming in chapter 20), Moses makes all judicial decisions, presumably after consultation with YHWH. After the Ten Commandments, a set of smaller decrees flesh out how those "Ten Eords" apply to the people. Embedded in the smaller laws are instructions on how judges are to rule, describing a system in which there is a judicial system that allows decisions at a local level.
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