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The phrase all the congregation here refers to the people mentioned in 2 Chronicles 23:2.

And all the congregation. — Of the assembled Levites and family chiefs, as well as the royal guard.
Made a covenant…

(See Gill on 2 Chronicles 23:1).

To look upon ourselves and each other as the Lord's people, should make us earnest in the discharge of our duty both to God and man. Thus was this …
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Albert Barnes
AlbertBarnes