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God has commanded that 10 men choose for themselves a ruler of 10 (Exo. 18:25).  Less than 10 cannot choose a ruler for themselves.  The ruler himself is not included in the 10.  A ruler of 10 can rule over 19 men, but if they become 20, then they must choose another ruler of 10.  Likewise with the other orders:  A ruler of 50 can ruler over 9 orders of 10, but if there becomes 10 orders of 10, they must choose an additional ruler of 50.  A ruler of 100 may rule over 3 orders of 50, but if they become 4 orders of 50, 2 of them must choose another ruler.  A ruler of 1000 can rule over 19 orders of 100, but if there become 20 orders of 100, then they must choose another ruler of 1000.  The orders of men may be increased by combining the excess of several orders.  For example, 2 orders of 10 with 15 members each, can combine 5 from each one to create a new order of 10. Combining in this way may be done when desired; it is not commanded by the Lord.  If there is a dispute, it can be appealed to superior councils, and if necessary to the highest council (Deut. 1:17).  The highest council acts in the place of Moses, and Scripture is the mouth of God by which disputes must be determined, as far as God gives light.  Until the mind of God is known, the case must stay unchanged (Num. 15:34; Num. 9:8).
- John Eliot, The Christian Commonwealth, or The Civil Policy of the Rising Kingdom of Jesus Christ (1659), pp. 5-9, at http://digitalcommons.unl.edu/cgi/viewcontent.cgi?article=1021&context=libraryscience.