Charles Ellicott Commentary Numbers 13:1

"And Jehovah spake unto Moses, saying," — Numbers 13:1 (ASV)

And the Lord spoke to Moses ... — There is no inconsistency between this statement and what is contained in Deuteronomy 1:22, where the sending of the spies is represented as having originated with the people. It is said there that the saying pleased Moses greatly; but it would be wholly inconsistent with the character and conduct of Moses to suppose that in a matter of such importance he would have acted in accordance with the suggestion of the people, or on his own judgment, without seeking direction from God.

The command that was given to Moses must not be regarded as necessarily implying that the expedition of the spies was, in the first instance, ordained by God, any more than the command that was afterwards given to Balaam to accompany the messengers of Balak was any indication that God originally commanded or approved of his journey.