Concise Bible Dictionary:
This in the first place refers to God; but in human affairs He is pleased to delegate His authority to the rulers, and Judah is twice mentioned as God’s lawgiver (Gen. 49:10; Num. 21:18; Deut. 33:21; Psalm 60:7; Psalm 108:8; Isa. 33:22; Jas. 4:12).