Judah would again become a quiet and secure place where shepherds pasture their flocks. This may refer to leaders of people, not just shepherds of sheep (cf. Jeremiah 23:1-3; Ezekiel 34:1-6; Luke 15:3-7; John 10:1-18). The Targum interpretation substituted the word "Messiah" for the phrase "the one who numbers them."[source]