1 Kings 20:7

The political institution of a Council of elders (Exodus 3:16, etc.), which had belonged to the undivided nation from the sojourn in Egypt downward, had therefore been continued among the ten tribes after their separation, and still held an important place in the system of Government. The Council was not merely called together when the king needed it, but held its regular sittings at the seat of government; and hence, “all the elders of the land” were now present in Samaria. On the “elders of towns,” see 1 Kings 21:8.

Apparently the king had not thought it necessary to summon the Council when the first terms were announced to him, inasmuch as they touched only himself. The fresh demands affected the people at large, and it became necessary, or at any rate fitting, that “the elders” should be consulted.