Genesis 49:28 - Ellicott's Commentary On The Whole Bible

These are the twelve tribes. — As we have seen in the case of Dan, Jacob had the further object of forming his descendants into twelve separate communities, which were, like the States in America, each to be independent, and have its own tribal government. From this position Levi naturally was excluded, when selected for the priesthood, and room was thus made for the bestowal of two of these communities upon the descendants of Joseph. Only in case of war they were to combine under the chieftainship of Judah. In the Book of Judges, however, we find the tribes as separate in matters of war as of peace, and by the time of Saul the need of a closer union had been felt, and tribal independence had been found to lead only to anarchy.