1:19-21
The Lord had commanded them to leave Horeb was where they had received the Law, but that was not where they were to stay. God gave them the Law so that they would know how to live in the Promised Land. Likewise, God does things in our lives in one place, but does so in preparation for the next phase of life. It is our human nature to want to stay in the place where God blesses us, this can be OK for a season, but we must always be ready to move on when He tells us to. So they came to the border of the Promised Land. Moses knew that it was time to go in, and he encouraged the people to do so.
1:22-25
Here it says the people wanted to send spies into the land. In Num 13:1,2 it says God told Moses to send spies into the land. Here in 1:23 it says that Moses agreed to this. We could square the two accounts by saying that Moses consulted the Lord after the people’s request, and God had agreed to the request. Whatever the details, the spies went into the land and brought back some of the fruit of the land. They agreed that the land was a good land.