The meaning is that the "officers" should then subdivide the levies, and appoint leaders of the smaller divisions thus constituted.

And it shall be, when the officers have made an end of speaking unto the people,.... By reciting what the anointed of war said unto them, and by speeches of their own framing, to encourage to the battle; and all were dismissed that had leave to depart, and chose to take it:

that they shall make captains of armies to lead on the people; on to battle; that is, either the officers should do this, which may seem to confirm what has been hinted, that they might be generals of the army, who constituted captains under them, to lead the people on to battle: unless this is to be understood of the princes of Israel, or of the king when they had one, and his ministers; for it does not appear in any instance that the people chose their own officers over them, to go out before them, and lead them on to battle; or "to be at the head of them" (z); which the Jewish writers understand in a very different sense; not to head them, or be at the head of them, to direct and command them, but to keep them from deserting: their sense is, that the officers having dismissed persons in the circumstances before described, and set stout men before them, and others behind them (i.e. the army of the people), with iron hatchets in their hands, and every one that sought to return, they had power to cut off his legs; since flight is the beginning of falling before their enemies (a).

(z) "in capite populi", Pagninus, Montanus. (a) Misn. ut supra (Sotah, c. 8.), sect. 6.

When this was finished, the shoterim were to appoint captains at the head of the people (of war). פּקד, to inspect, to muster, then to give the oversight, to set a person over anything (Numbers 3:10; Numbers 4:27). The meaning "to lead the command" (Schultz) cannot be sustained; and if "captains of the armies" were the subject, and reference were made to the commanders in the war, the article would not be omitted. If the shoterim had to raise men for the war and organize the army, the division of the men into hosts (Zebaoth) and the appointment of the leaders would also form part of the duties of their office.

And it shall be, when the officers have made an end of speaking unto the people that they shall make captains of the armies to lead the people.

20:9 Make captains - Or rather, as the Hebrew hath it, they shall set or place the captains of the armies in the head or front of the people under their charge, that they may conduct them, and by their example encourage their soldiers. It is not likely they had their captains to make when they were just going to battle.

to lead...: Heb. to be in the head of the people

9. they shall make captains of the armies to lead the people-When the exempted parties have withdrawn, the combatants shall be ranged in order of battle.

20:1-9 In the wars wherein Israel engaged according to the will of God, they might expect the Divine assistance. The Lord was to be their only confidence. In these respects they were types of the Christian's warfare. Those unwilling to fight, must be sent away. The unwillingness might arise from a man's outward condition. God would not be served by men forced against their will. Thy people shall be willing, Ps 110:3. In running the Christian race, and fighting the good fight of faith, we must lay aside all that would make us unwilling. If a man's unwillingness rose from weakness and fear, he had leave to return from the war. The reason here given is, lest his brethren's heart fail as well as his heart. We must take heed that we fear not with the fear of them that are afraid, Isa 8:12.