John Gill Commentary Numbers 27:17

"who may go out before them, and who may come in before them, and who may lead them out, and who may bring them in; that the congregation of Jehovah be not as sheep which have no shepherd." — Numbers 27:17 (ASV)

Which may go out before them, and which may go in before them,
and which may lead them out, and which may bring them in
Which may lead them out, and go before them in war, and command them in battle and bring them in peace, having conquered their enemies; or these phrases only mean the administration of civil government among them, and diligence and assiduity in it, see (2 Chronicles 1:10) , unless it has any peculiar respect to the leading the people of Israel out of the wilderness, and introducing them into the land of Canaan:

that the congregation of the Lord be not as sheep which have no
shepherd ;
and so wander about, having none to guide them into proper pastures, or to protect them from beasts of prey; which is to be in a most forlorn and distressed condition; see (Matthew 9:36) .