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This and the next two chapters contain enactments designed to protect human life, and to impress its sanctity on Israel.
In Deuteronomy 19:1-13 the directions respecting the preparation of the roads to the cities of refuge, the provision of additional cities in case of an extension of territory, and the intervention of the elders as representing the congregation, are unique to Deuteronomy and supplementary to the laws on the same subject given in the earlier books (compare the marginal reference).
Deuteronomy 19:1, Deuteronomy 19:2
The three cities of refuge for the district east of Jordan had been already named. Moses now directs that when the territory on the west of Jordan had been conquered, a like allotment of three other cities in it should be made. This was accordingly done; compare Joshua 20:1 ff,
Deuteronomy 19:3
Thou shalt prepare thee a way - It was the duty of the Senate to repair the roads that led to the cities of refuge annually, and remove every obstruction. No hillock was left, no river over which there was not a bridge; and the road was at least 32 cubits broad. At cross-roads there were posts bearing the words Refuge, Refuge, to guide the fugitive in his flight. It seems as if in Isaiah 40:3 ff the imagery were borrowed from the preparation of the ways to the cities of refuge.
Deuteronomy 19:5
With the axe - literally, “with the iron.” Note the employment of iron for tools, and compare Deuteronomy 3:11 note.
Deuteronomy 19:8, Deuteronomy 19:9
Provision is here made for the anticipated enlargement of the borders of Israel to the utmost limits promised by God, from the river of Egypt to the Euphrates (Genesis 15:18, note; Exodus 23:31, note). This promise, owing to the sins of the people, did not receive its fulfillment until after David had conquered the Philistines, Syrians, etc.; and this but a transient one, for many of the conquered peoples regained independence on the dissolution of Solomon‘s empire.
“When they had made an end of dividing the land,” and all the tribes had been allotted their inheritance. Joshua presented his claim. To him, as to Caleb, a special promise of inheritance had been given; yet he asked for no extensive province, but only a single city. “They gave him the city which he asked, ... and he built the city, and dwelt therein.” The name given to the city was Timnath-serah, “the portion that remains”—a standing testimony to the noble character and unselfish spirit of the conqueror, who, instead of being the first to appropriate the spoils of conquest, deferred his claim until the humblest of his people had been served. PP 515.1
Six of the cities assigned to the Levites—three on each side the Jordan—were appointed as cities of refuge, to which the manslayer might flee for safety. The appointment of these cities had been commanded by Moses, “that the slayer may flee thither, which killeth any person at unawares. And they shall be unto you cities for refuge,” he said, “that the manslayer die not, until he stand before the congregation in judgment.” Numbers 35:11, 12. This merciful provision was rendered necessary by the ancient custom of private vengeance, by which the punishment of the murderer devolved on the nearest relative or the next heir of the deceased. In cases where guilt was clearly evident it was not necessary to wait for a trial by the magistrates. The avenger might pursue the criminal anywhere and put him to death wherever he should be found. The Lord did not see fit to abolish this custom at that time, but He made provision to ensure the safety of those who should take life unintentionally. PP 515.2
The cities of refuge were so distributed as to be within a half day's journey of every part of the land. The roads leading to them were always to be kept in good repair; all along the way signposts were to be erected bearing the word “Refuge” in plain, bold characters, that the fleeing one might not be delayed for a moment. Any person—Hebrew, stranger, or sojourner—might avail himself of this provision. But while the guiltless were not to be rashly slain, neither were the guilty to escape punishment. The case of the fugitive was to be fairly tried by the proper authorities, and only when found innocent of intentional murder was he to be protected in the city of refuge. The guilty were given up to the avenger. And those who were entitled to protection could receive it only on condition of remaining within the appointed refuge. Should one wander away beyond the prescribed limits, and be found by the avenger of blood, his life would pay the penalty of his disregard of the Lord's provision. At the death of the high priest, however, all who had sought shelter in the cities of refuge were at liberty to return to their possessions. PP 515.3
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