The monarchy retained in the kingdom of the ten tribes its military character; the commander-in-chief was the first person in the kingdom.  In internal affairs its interference was slight; with systematic despotism it had little in common, although of course within its narrow sphere it united executive and legislative functions.  It was little more than the greatest house in Israel.  The highest official was called “master of the household.”  The court ultimately grew into a capital, the municipal offices of which were held by royal officials.  The provinces had governors who, however, in time of war withdrew to the capital (1Kings xx.); the presumption is that their sole charge was collection of the revenue.

The state was not charged with affairs of internal administration; all parties were left free to maintain their own interests.  Only in cases in which conflicts had emerged in consequence could the king be approached.  Ruling and judging were regarded as one and the same; there was but one word for both (2Kings xv. 5).  Still, the king was not altogether the only judge; there were, in fact, a number of independent jurisdictions.  Wherever within a particular circle the power lay, there the right of judging was also found, whether exercised by heads of families and communities or by warriors and powerful lords.  It was only because the king was the most powerful that he was regarded as the judge of last resort; but it was equally permitted to apply to him from the first.  Of method and rule in these things there was but little; a man was glad to find any court to receive his complaint.  Of course without complaint one got no justice.  The administration of justice was at best but a scanty supplement to the practice of self-help.  The heir of the murdered man would not forego the right of blood revenge; but his family or the commune gave him aid, and in case of need took his place, for bloodshed had at all hazards to be atoned for.

The firm establishment of civil order was rendered all the more difficult by the continual wars and violent changes of dynasty which ever and anon made its very existence problematical.  Power, which is more important than righteousness to a judicatory, was what the government was wanting in In the simpler social conditions of the earlier time a state which was adapted merely for purposes of war might easily be found to work satisfactorily enough, but a more complex order of things had now arisen.  Social problems had begun to crop up; for the poor and the proletariat the protection of a thoughtful government had come to be required, but was not forthcoming.